Chapter 3: REGIONAL CHALLENGES, NEEDS, AND STRATEGIES
This chapter addresses the myriad needs and challenges facing the region. As the region’s understanding of these issues has grown, so has the recognition that many of these issues are interrelated. Transportation investments are increasingly considered for their impacts on air quality, whether they are promoting active transportation and improving public health, and whether projects contain design elements that promote safety for all users. Perhaps most importantly, the relationship between land use patterns and transportation conditions impacts how easily individuals can access jobs, services, and amenities by different modes, the transportation options that are available, as well as the costs associated with daily travel needs.
The great challenge in transportation planning is that many of these needs are at times contradictory and need to be balanced. Travelers want to be able to reach their destination as quickly as possible and freight needs to be shipped across the region, yet creating livable places and safe conditions for bicyclists and pedestrians are important priorities as well. Similarly, the region must not view congestion as a universal ill, but something that must be managed and for which different strategies apply in different places.
The 2040 MTP considers many of these challenges in the context of growth patterns and scenario planning. Understanding the distribution of housing and employment sites is critical for projecting future travel patterns, availability of transportation modes, and accessibility to jobs and services. And it is the same set of growth patterns that affect land consumption and natural resource needs, including water, which is a consideration in the MTP for the first time.
It is also critical to examine regional challenges through the lens of changing preferences and travel patterns. Inherent to the Preferred Scenario is that future housing and transportation decisions will not be made using the same criteria as even a few years ago. This chapter begins by exploring the rapidly changing travel behavior patterns and consumer preferences of residents of the Albuquerque Metropolitan Planning Area (AMPA). Understanding these trends will prove critical for identifying appropriate transportation infrastructure investments that make the metropolitan area a place that can attract new businesses and retain local talent, and more simply, a place where people want to be.
To make this chapter more accessible to the reader, each section contains a side panel outlining key takeaways and components related to the mode or topic area, as well as the relationship between the mode or topic area and MTP goals and objectives. Strategies are provided at the end of each section as appropriate. The strategies contained within Chapter 3 are coalesced into recommendations and action items in Chapter 5.
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Issues Discussed in Chapter 3
3.1 Transportation Trends and Changing Preferences ...... 3-3
3.2 Roadways ...... 3-14
3.3 Freight and the Movement of Goods and Services ...... 3-58
3.4 Transit ...... 3-70
3.5 Pedestrian and Bicycle ...... 3-107
3.6 Safety ...... 3-118
3.7 Transportation and Security ...... 3-139
3.8 Public Health ...... 3-144
3.9 Air Quality...... 3-153
3.10 Environmental Justice ...... 3-159
3.11 Economic Impacts ...... 3-165
3.12 Travel Demand Management ...... 3-172
3.13 Livable Communities: Accessibility and Connectivity ...... 3-178
3.14 Climate Change Impacts ...... 3-196
3.15 Water Resources ...... 3-206
3.16 Environmental Considerations ...... 3-215
3.17 Emissions Reduction and Responding to Climate Change ...... 3-223
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3.1 Transportation Trends and Changing Preferences
For decades, the average American traveled greater distances every year than they had the year before. Vehicle ownership rates continued to increase and it appeared that the appetite for vehicle travel was In a Nutshell… insatiable. But in the mid-2000s vehicle travel peaked and individual Takeaways: Travel behavior in behavior slowly began to change. At first it was assumed that behavior the AMPA is changing. Daily differences were purely a function of a struggling economy. Only now is it driving rates are now decreasing becoming apparent that those changes are more structural in nature. and there is increased demand Across the United States there is renewed interest in downtowns, urban for alternative modes of living, and a migration to metropolitan areas in general. Accompanying transportation. Providing a these population shifts are changing lifestyles and increased preference range of housing and for walkable, mixed-use neighborhoods and access to alternative modes transportation options is critical of transportation. To be clear, these changes do not reflect a wholesale for meeting the evolving needs shift in American travel patterns. Private vehicles will remain king, but the of Albuquerque area residents. long-term trends have changed such that driving will likely decrease over Components: This section time and trips by other modes are likely to increase. utilizes national and local data The clearest indicator of changing transportation patterns is the decline in on observed travel behavior and per capita vehicle miles traveled (VMT), a trend that began several years stated housing and before the Great Recession and continued even after the recovery. After transportation preferences. growing by an average 1.8 percent per year from 1970 to 2004, per capita Local data is drawn from the VMT fell by about eight percent from 2005 to 2012. In fact, nationwide Mid-Region Household Travel per capita VMT dropped for nine straight years since its peak.1 Survey and the MTP Questionnaire.
Goals and Objectives: Meeting the range of transportation needs and creating broader options are directly related to the MTP goals of Mobility, Economic Vitality, and Active Places.
1 Federal Highway Administration, http://www.ssti.us/2014/02/vmt-drops-ninth-year-dots-taking-notice/
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Figure 3-1: Total Nationwide VMT (Millions), 1970-2012
3,500,000
3,000,000
2,500,000
2,000,000
1,500,000
1,000,000
1970 1972 1974 1976 1978 1980 1982 1984 1986 1988 1990 1992 1994 1996 1998 2000 2002 2004 2006 2008 2010 2012
While total amounts of driving have declined, Americans’ relationship with driving also seems to be experiencing subtle shifts. In particular, vehicle ownership rates are decreasing – the number of registered vehicles per household dropped by five percent from 2006 to 20112 – while the percentage of young persons without drivers licenses has increased substantially (the percentage of senior citizens with drivers licenses has increased dramatically over this time).3
The demographic group that is driving many of these changes is the Millennial generation (the largest generation since the Baby Boomers, and generally identified as those born between the early 1980s and the year 2000), which appears to be choosing to behave differently when it comes to housing and transportation choices. Studies based on National Household Travel Surveys found that Millennials not only utilize alternative modes at a higher rate than other generations, but also at a higher rate than persons of the same age did one decade earlier. Compared to 16-34 year-olds in 2001, 16-34 year-olds in 2009 took 15 percent fewer total trips, but 24 percent more bike trips and 16 percent more walking trips. At the same time, distances traveled by transit increased by 40 percent, and vehicle miles traveled decreased by 23 percent. The drop in VMT was shared across income categories and was not simply a function of different economic conditions in 2009; VMT decreased by 16 percent among employed
2 Michael Spivak, “Has Motorization in the US Peaked?” University of Michigan Transportation Research institute, July 2013 3 University of Michigan Transportation Research institute, cited in The Atlantic, “The Dramatic 30-Year Decline of Young Drivers (In 1 Chart),” July 20, 2012
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young persons, and individuals living in “households with annual incomes of over $70,000 increased their use of public transit by 100 percent, biking by 122 percent, and walking by 37 percent.”4
Figure 3-2: Change in Behavior Among 16-34 Year-olds, 2001 vs. 2009
50%
40% 40%
30% 24%
20% 16%
10%
0% Drivers Vehicle Miles (VMT) Trips per Day Walking Biking Transit -10% Licenses Traveled Employed Distances persons Traveled -20% -16% -15%
-23% -30% -25%
In particular, Millennials demonstrate an increased preference for urban lifestyles with access to amenities and a range of transportation options, with 77 percent indicating they plan on living in urban core areas.5 The urbanizing trend accompanies trends in household composition in which family sizes are shrinking and the age at which families are having children is increasing, thus delaying the need for larger homes. Other studies have found that Millennials may indeed elect to pursue home-ownership and lifestyles similar to previous generations, albeit at a later time in their lives, and not all Millennials will engage in such lifestyle behaviors.6 But the changing rates, and the sheer size of the Millennial generation, are likely to drive demand for greater housing and transportation options for many years to come.
The impacts of these trends extend beyond transportation and housing considerations. According to a report from the City Observatory, college-educated Millennials are moving disproportionately to inner- city neighborhoods and city centers, and are driving urban revitalization. These migration patterns are important indicators of the desirability of a place and can help fuel economic growth as firms locate closer to local talent.7
4 Frontier Group and U.S. PIRG, “Transportation and the New Generation: Why Young People are Driving Less and What it Means for Transportation Policy,” April 2012 5 Robert Charles Lesser & Co. Survey, 2011 6 Demand Institute Housing & Community Survey, 2013 7 City Observatory, “City Report: The Young and Restless and the Nation’s Cities,” October 2014
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3.1.2 Trends in the Albuquerque Metropolitan Planning Area
It is important to consider not just national trends, but to understand local behavior as well. MRMPO collects a range of transportation data, including traffic counts, travel times, and transit ridership, and tracks regional-level transportation patterns over time. Two recent efforts also provide insight into transportation values and behavior in the AMPA: the Mid-Region Household Travel Survey, which asked participants to record their actual travel behavior on a given weekday; and the 2040 MTP Questionnaire, which allowed respondents to state their opinions on the existing transportation system.
Transportation Data
Similar to the nation at-large, per capita VMT rose for decades before reaching its peak in the AMPA in 2004 with the average resident traveling more than 24 miles per day. That number has declined by ten percent through 2012, with the average resident now traveling less than 22 miles per day. And similar to national trends, the shift began several years before the Great Recession (see Table 3-1). Total VMT did grow during this span, but at a rate much lower than that of population growth.
Table 3-1: Summary Transportation Statistics, 2004-2012
Growth % - Measure 2004 2012 2004-2012 Population - AMPA 691,758 875,061 26% Population - Bernalillo County 600,449 673,460 12% Vehicle Miles Traveled - Total 16,735,195 18,966,203 13% Vehicle Miles Traveled - Per Capita 24.2 21.7 -10% Transit Ridership 7,823,498 14,277,115 82% Passenger Miles Traveled 21,477,415 100,245,174 367%
At the same time that per capita driving fell, transit ridership surged and far exceeded the rate of population growth. From 2004 to 2012, transit ridership grew by 82 percent to surpass 14 million annual trips across all services. Not only are Albuquerque area residents utilizing transit more, the distances transit users are traveling has increased dramatically, suggesting important shifts in the way people are using transit. From 2004 to 2012, transit passenger miles traveled increased by 367 percent, one of the highest rates of increase in the country.8 The biggest sources of new ridership and longer-distance trips are the New Mexico Rail Runner Express, which carries approximately 4,000 passengers a day a distance of more than 40 miles per trip, the introduction of the ABQ Ride Rapid Ride system, and policies to provide free transit passes to UNM and CNM students, faculty, and staff.
8Frontier Group and US PIRG, “Transportation in Transition,” November 2014
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Figure 3-3: Per Capita VMT in the Albuquerque Metropolitan Planning Area, 1970-2012
26.0
24.0
22.0
20.0
18.0 VMT Per Capita Per VMT
16.0
14.0
12.0
10.0
1970 1972 1974 1976 1978 1980 1982 1984 1986 1988 1990 1992 1994 1996 1998 2000 2002 2004 2006 2008 2010 2012
Figure 3-4: Transit Ridership by Service Provider, 2000-2012
16,000,000
14,000,000
12,000,000
10,000,000 Trips All Other 8,000,000
NM Rail Passenger 6,000,000 Runner Express
ABQ Ride 4,000,000
2,000,000
0 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 Fiscal Year
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Mid-Region Household Travel Survey
From November 2013 to January 2014, nearly 2,500 households (and more than 5,000 individuals) from across Bernalillo, Sandoval, and Valencia Counties participated in the Mid-Region Travel Survey.9 The comprehensive random sample study marked the first time in more than twenty years that day-to-day travel patterns around the region were analyzed. A lot has changed in the last two decades: the region has grown by more than a quarter of a million residents, highways have been greatly expanded, and a series of new mass transit services have been introduced, including the Rail Runner and ABQ Ride’s Rapid Ride System. In other words, the time was more than ripe to study local travel patterns.
Table 3-2: Household Travel Survey Responses by County
County Households Share Population Share Bernalillo 1,658 67% 675,548 77% Sandoval 464 19% 126,490 14% Valencia 349 14% 77,363 9% Total 2,471 100% 879,401 100%
Household travel surveys are conducted specifically to inform a range of planning efforts, including updates to MRMPO's travel demand model which helps project future travel patterns and provides insight into future infrastructure needs. Such surveys also offer a unique opportunity to understand how traveler behavior varies according to factors such as household size, age, income, and place of residence. In the process, it also provided a chance to see whether national trends apply in central New Mexico.
Table 3-3: Travel Characteristics by Age Group
Number of Average Distance per Age Group Trips Distance (Miles) Trip (Miles) Millennials (16-31 years of age) 3.72 22.8 6.46 Gen-X (32-49 years of age) 4.52 37.3 8.42 Boomers (50-67 years of age) 3.99 25.9 7.52 All Ages 3.55 24.8 7.16 Note: These groups reflect the age of respondents at the time of the survey.
Particularly noteworthy is the fact that persons aged 16-31, roughly equivalent to the Millennial generation, travel just over 22 miles per day, or about 37 percent fewer miles than persons aged 32-49, which corresponds to Generation X. Persons over age 50 also tend to travel shorter distances each day, due in part to the fact that not as many of them are commuting to work or giving children rides.
9 To ensure meaningful analysis, MRMPO oversampled in Sandoval and Valencia Counties, meaning respondents from those counties formed a larger percentage than the population share (see Figure 3-2).This disproportionate sampling allows more meaningful analysis of travel behavior by residents of those counties, and far better understanding of how travel behavior varies from county to county.
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Although the number of trips taken by different age groups is fairly comparable among different generations – Seniors take the fewest trips per day (3.55 trips) and Generation Xers take the most (4.52 trips) – Millennials travel the shortest distances for individual trips.
The Household Travel Survey also revealed important differences based on place of residence. On average, Bernalillo County residents age 16 years or older on average travel about 23 miles per day, while Sandoval County and Valencia County residents travel 33 miles per day and 40 miles per day, respectively. The highest percentage of biking, waking, and transit trips are taken by Bernalillo County residents (however, walking forms a relatively small share of overall trips; slightly more than eight percent of trips by Bernalillo County residents were walking trips, while 11 percent of trips nationwide are walking trips).
And in keeping with national trends, Millennials also bike, walk, and utilize public transit at higher rates than other age groups. Taken together, these data points provide a clear indication that walking trips are most commonly performed by young adults in more urban settings.
Figure 3-5: Alternative Mode Share by County, Household Travel Survey
9% 8.3% 8%
7%
6%
5% Bernalillo 4.2% 3.9% Sandoval 4% Valencia 3% 2.7% 2.3% 2.0% 2% 1.7%
1% 0.2% 0.1% 0% Bike Public Transit Walk
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Figure 3-6: Alternative Mode Share by Age, Household Travel Survey
9% 8.1% 8%
7% 6.7% 6.7%
6% 5.6%
5% Bike 4% Public Transit 3.3% Walk 3% 2.6% 2.8% 2.2% 2.0% 2% 1.6% 1.3% 1% 0.2% 0% Millennials (ages Generation X (ages Baby Boomers Seniors (ages 68+) 16-31) 32-49) (ages 50-67)
2040 MTP Questionnaire
In contrast to the Mid-Region Household Travel Survey, which was not an attitude survey and was invitation-only to ensure an accurate cross-section of residents and household types, the 2040 MTP Questionnaire was designed to gather people’s opinions about transportation needs and challenges across the region. The questionnaire was open from October 2013 through January 2014, and garnered over 1,300 participants. While the questionnaire was neither random nor statistically significant, it is useful for MRMPO's understanding of how the public views the region’s transportation system and what types of improvements should be made.
Stated satisfaction levels formed an almost perfect bell curve, with the highest number of participants expressing a neutral opinion on the transportation system. Overall, 31.7 percent of respondents indicated the system met their needs either “well” or “very well.” More revealing were responses by age. While more than 41 percent of seniors (aged 65 years and older) view the transportation system favorably, younger respondents were less positive; only a quarter of 18 to 34 year-olds indicate their needs are met, the lowest of any age group by a significant margin.
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Figure 3-7: Levels of Satisfaction with Overall Transportation System, 2040 MTP Questionnaire
600 520 500
400 331
300 282
200
Number of of Number Responses 131 103 100
0 1 = Very well 2 3 4 5 = Not well at all
Figure 3-8: Levels of Satisfaction by Age, 2040 MTP Questionnaire
45% 41.3% 40% 34.6% 35% 31.8% 29.9% 30% 25.3% 25%
20%
15%
10%
5%
0% 18-34 35-44 45-54 55-64 65 +
To determine how the transportation system could be improved, respondents were asked to identify the modes they would most like to see improved upon. A majority of respondents (57 percent) indicated they would like to see increased bus transit service, while 46 percent and 45 percent viewed bicycle and rail transit improvements as particularly important. Curiously, roadway and pedestrian improvements were the least cited modes (34 and 33 percent respectively). Collectively, the results reveal a clear need to provide transportation options and create the lifestyle opportunities that are necessary for attracting
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and retaining young professionals. In short, there is a role to be played in selecting smart transportation investments and creating a more attractive and economically competitive Albuquerque metropolitan area.
The MTP Questionnaire also revealed something of a mismatch between available and desired housing options. In terms of current housing, nearly half (47 percent) of residents live in either rural or suburban settings, with the greatest number of respondents (37 percent) classifying their current setting as semi- urban. However, far more respondents indicated that they live in suburban settings today than would like to in the future, and far fewer respondents indicated that they live in urban settings today than would like to in the future.
Housing preferences by age group are also illuminating. Particularly noteworthy is the fact that 71 percent of 18 to 34 year-olds, a group comparable to the Millennial generation, indicated a desire to live in semi-urban or urban settings; this number is remarkably close to the 77 percent of Millennials who reported wanting to live in urban cores in a national survey. However, preference for more urban living was shared by a majority of respondents of all age groups. The age group least inclined to prefer urban settings were respondents 45 to 54 years of age.
Figure 3-9: Housing Preferences by Location, 2040 MTP Questionnaire
40% 37.0%
35% 33.4% 30.9% 30% 27.4%
25% 22.2%
20% Current 16.5% 16.7% 16.0% Future 15%
10%
5%
0% Rural Suburban Semi-Urban Urban
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Figure 3-10: Housing Preferences by Age, 2040 MTP Questionnaire
80% 71% 70% 65% 61% 60% 58% 52% 50% 48% 42% Urban + 39% Semi-Urban 40% 35% 29% 30% Suburban + Rural 20%
10%
0% 18-34 years 35-44 years 45-54 years 55-64 years 65+ years
Summary
The trends and patterns described here add an extra dimension to the transportation challenges facing the region. Funding for transportation projects is becoming increasingly limited, and there is renewed emphasis on maintaining the region’s existing infrastructure. Taken together, these trends justify a move away from transportation planning practices that prioritize capacity expansion and respond to the now-outdated assumption that driving rates will increase indefinitely. Rather, the region should transition to planning for a greater range of community types and transportation models. Moreover, the consistency between observed behavior and stated preferences at a local and national scale indicate that the region should in fact pay attention to national trends and research.
Evidence suggests growing demand for alternatives to the single-occupancy vehicle and that cities that embrace these changes are the places that are thriving. To attract and retain young workers, the Albuquerque area must address the high levels of dissatisfaction among young residents and the mismatch in housing and transportation options.
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3.2 Roadways
The vast majority of travel in the AMPA takes place by private vehicle. As many drivers know firsthand, the region already experiences areas of In a Nutshell… severe roadway congestion. Future years do not show any sign of reprieve as the area is projected to continue to grow and total vehicle Takeaways: Roadway travel miles traveled continue to rise. According to transportation demand conditions are expected to model analyses performed by MRMPO, the severity and number of deteriorate over time and the congested roadways will increase substantially by the horizon year 2040, pace of new road construction especially for river crossings and on the Westside. will not keep up with demand. Congestion along the river Addressing the mobility needs of a growing population in a time of crossings will become limited transportation funding therefore requires creative solutions. This increasingly severe. A range of section looks at some of the primary challenges from a roadway creative management strategies perspective that must be addressed as part of the transportation will be required to ensure planning process. The MRMPO travel demand model is used throughout motorists can reach their this section to examine the impacts of the underlying land use patterns destinations. found in the Trend and Preferred Scenarios on future roadway conditions, and considers how the region will maintain and improve the Components: This section roadway network. examines existing roadway conditions and the 2012 base
year and the 2040 Trend and 3.2.1 Current Roadway System: Data Collection and Preferred Scenarios travel model scenarios. Strategies for Traffic Volumes enhancing regional mobility within the AMPA are presented, MRMPO employs several data sources to establish a picture of past including capacity expansion, trends and current conditions for roadway conditions in the AMPA. These asset management, and include: transportation systems • Count/volume data from MRMPO’s Traffic Counts Program and management. data from regional partners such as the New Mexico Department Goals and Objectives: Mobility is of Transportation ITS (Intelligent Transportation Systems) Bureau one of the four goals of the MTP, and other member agencies and can be addressed through • Speed and travel times gathered anonymously from mobile GPS preserving the existing devices infrastructure and managing • Regional travel demand model output that reveals travel patterns congestion and enhancing and origin-to-destination flows operations. An efficient roadway • Infrastructure asset management programs from local agencies system directly supports the goal • Travel behavior data from the recent Mid-Region Household of Economic Vitality. Travel Survey
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Map 3-1: Highway Functional Classification in the AMPA, 2015
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Traffic Counts
Traffic counts are conducted on all federal-aid eligible roadways in the counties of Bernalillo, Torrance, Sandoval, and Valencia, and are coordinated through the MRCOG Traffic Counts Program. They form the basis of the roadway performance monitoring responsibilities of MRMPO. Federal-aid eligible roadways include collectors and arterials and are shown on the current highway functional classification system in Map 3-1.
Figure 3-11: Daily Vehicle Miles Traveled in the AMPA, 1970-2012
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Daily Observed VMT Observed Daily 8,000,000
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0
A key performance measure monitored by the Traffic Counts Program is vehicle miles traveled, or VMT, which reflects the amount of vehicle travel on the roadway network. Figure 3-11 shows the historical trend in daily vehicle miles traveled in the AMPA from 1970 to the present. This time series shows a steady long-term increase in the amount of travel; however, in recent years the counts program has captured a national trend – growth in VMT is actually stabilizing and in some instances going down.
Total VMT for the region provides a measure of the amount of travel taking place on the network, which is both a factor of personal travel as well as population growth. What is not captured in Figure 3-11 is the amount of per capita VMT, or the amount that each individual contributes to the region’s daily VMT. As with the total VMT trend, the per capita statistic captures slight variations with observed peaks and valleys reflecting phenomena such as national energy price fluctuations, national and local economic forces, or major local construction projects. As shown in Figure 3-12, per capita VMT had generally increased for decades. However, not only did the per capita VMT rate flatten out over time, but there has been a 10 percent decrease in per capita VMT from 2004 to 2012. This reversal in the last decade
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mimics national trends, and is due to the effects of the Great Recession and reductions in personal budgets (resulting in reduced personal vehicle travel), as well as shifts in traveler behavior and increased preference for transit.
Figure 3-12: Per Capita VMT in the AMPA, 1970-2012
26.0
24.0
22.0
20.0
18.0 VMT Per Capita Per VMT
16.0
14.0
12.0
10.0
1970 1972 1974 1976 1978 1980 1982 1984 1986 1988 1990 1992 1994 1996 1998 2000 2002 2004 2006 2008 2010 2012
Traffic volumes observed passing through the I-25 and I-40 interchange, also known as the Big-I, are another common index of travel growth in the AMPA. Figure 3-13 illustrates the observed growth from 1980 through 2013; overall, volumes increased by 105 percent during this span. It is important to note the plateau in growth beginning in 2008. Although volumes increased once again as the region recovered from the Great Recession, the rate of growth is well below historical levels.
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Figure 3-13: Average Weekday Daily Traffic at the Big-I, 1980-2012
400,000
350,000
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Observed AWDT 150,000
100,000
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0
Crossing the River
Recent development patterns—in particular the prolific growth west of the river and in the northwest portion of the metropolitan area—place a heavy burden on the region’s transportation infrastructure. As a result, maintaining acceptable levels of service on river crossings has become a challenge, especially during the peak commuting periods. This challenge is an important one to highlight since the only additional river crossing planned in the lifespan of the 2040 MTP is the Morris Rd alignment in Valencia County.
There are thirteen river crossings within the AMPA, each operating at various levels of service during the morning and evening peak periods of travel and supporting more than 500,000 daily trips across the Rio Grande. A review of historical average weekday traffic data presented in Figure 3-14 shows that demand has steadily increased over the years. The river crossings that serve the northwest portion of the AMPA and employment and activity centers east of the river experience the greatest congestion; these include Montano Rd, Paseo del Norte, Alameda Blvd, and US 550. However, like overall VMT trends, growth has flattened in recent years, perhaps in part due to roadway capacity issues on the river crossings themselves which may discourage travelers from making these trips. Nevertheless, growth in demand is expected to continue in future year scenarios of the MTP as the regional economy recovers and population and job growth continues across the region.
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Figure 3-14: River Crossing Traffic in the AMPA, 1984-2012
600,000
NM 346
500,000 NM 309 NM 6
400,000 NM 147 I-25 Rio Bravo Blvd 300,000 Bridge Blvd Central Ave 200,000 I-40 Montano Rd Average Weekday Traffic Daily Weekday Average 100,000 Paseo del Norte Alameda Blvd 0 US 550
Commuting Flows
The dynamics of land availability and development patterns have a dramatic effect on transportation patterns. In recent decades much of the new housing stock has been located outside the urban core. Although many population-serving jobs follow these rooftops, job concentrations and major employment centers tend to remain primarily within urban employment centers and corridors where infrastructure is already in place. This distribution of housing and jobs directly impacts commuting patterns and creates a range of transportation challenges. Planners look to travel data from the Census Transportation Planning Package (CTPP), especially for county-to-county commuter flows, to shed light on regional travel patterns. Commuter flows for the four counties in the Albuquerque Metropolitan Statistical Area can be found in Table 3-4.
According to the CTPP, Bernalillo County exhibits the highest rate of internal “capture” at 93 percent, indicating that the vast majority of Bernalillo County residents work in the county in which they reside. The lowest rate of internal capture is Sandoval County at 42 percent with Torrance and Valencia Counties at 48 percent and 49 percent, respectively. The high levels of external commuting trips for residents of these counties means heavy reliance on single-occupancy vehicle travel and places great strain on the regional roadway network.
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Table 3-4: 2010 County-to-County Work Flows
County of Work Bernalillo Sandoval Santa Fe Torrance Valencia In Out of Total County County County County County State State Bernalillo
County 93% 3% 1% 0% 1% 1% 1% 100% Sandoval County 49% 42% 5% 0% 1% 2% 1% 100% Santa Fe County 6% 0% 84% 1% 0% 1% 8% 100% Torrance County 39% 3% 8% 48% 1% 1% 1% 100% County of Residence Valencia County 46% 1% 1% 0% 49% 1% 3% 100%
3.2.2 Current Roadway System: Congestion Levels
Whether it is the result of population increases, overburdened infrastructure, or land-use patterns that increase reliance on vehicles for transportation needs, roadway congestion is increasingly a fact of life in American cities. The result is diminished air quality, losses in economic activity, and increased travel times for individuals. These realities create a series of transportation challenges which need to be addressed in order to ensure that individuals, goods, and services move efficiently throughout a metropolitan region.
It is important to establish the baseline congestion levels in the MTP so that future conditions and alternative scenarios can be evaluated in terms of relative change. MRMPO relies on several methodologies and data sources in this assessment of congested conditions, both of which are presented here. The timeframe for these measures is the PM peak hour, which constitutes the highest volumes and most diverse composition of travel during the day as it includes work-based trips as well as non-work based trips.
Congestion Based on Volume-to-Capacity Ratios
A simple method for indicating congestion on roadways is observing the roadway’s volume relative to the roadway’s ability to carry that volume, i.e., the volume-to-capacity (V/C) ratio. As traffic volume increases, it affects the ability of roadways to operate efficiently. When volume approaches or exceeds the intended capacity, delay and congestion ensue. The volume-to-capacity measure is simple to compute, providing that the agency has an adequate database of roadway volumes, as well as a robust roadway network inventory. MRMPO has both which makes this statistic a widely-used measure. Current capacity analyses have focused on the peak “hour”; however, as travel demand continues to
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increase, MRMPO and the region will analyze capacity using the peak period, which covers three hours. This type of analysis reflects the phenomenon called “peak hour spreading.”
The 2012 base year volume-to-capacity data (see Map 3-2) is derived from MRCOG’s Traffic Monitoring Program for the PM peak hour and shows that travelers experience “severe congestion” primarily along river crossings, portions of the interstate mainlines and interchanges, and at arterial corridors carrying excessive amounts of commuter travel. “Over capacity” conditions are also observed at river crossings and portions of the interstate mainline and interchanges, with extensive system degradation shown on arterials. “Approaching capacity” conditions extend to other parts of the network.10
Congestion Based on Actual Driving Speeds
Speed is another measure of congestion as trips are often considered in terms of how long it takes to get to a destination. Travel speed and travel time are directly related as speed is a measure of distance and time, as in miles per hour. Speed-based congestion is calculated based on the difference between the observed speed and the posted speed limit. Map 3-3 provides 2012 base year conditions; locations where one would expect lower speeds today are apparent, such as at approaches to intersections, known as bottlenecks, or simply areas of high travel demand.
Data Collection Methodology
Travel conditions can be measured in terms of traffic “volume,” or traffic “speed.” Traffic volume is measured as the number of cars/trucks traversing a point on the roadway network during a particular time period, such as peak hour or weekday, and is captured as part of MRMPO’s Traffic Monitoring Program. Traffic volumes on each roadway segment are collected at least once every three years, and when compared to the roadway segment’s ability to carry those vehicles, a volume-to-capacity value is generated. Roadway capacity is based on measures such as the number of lanes, posted speed, and the functional classification or type of roadway (i.e., collector, arterial, freeway, etc.).
In addition, MRMPO purchases third-party travel time data from INRIX, which is comprised of GPS- enabled devices such as personal smart phones, GPS devices on vehicles, and GPS-enabled commercial-vehicle fleets. INRIX data shows the distribution of congested speeds for different times of the day and is a meaningful planning tool in the identification of problem areas on the roadway system.
10 Note that these conditions are different than the modeled 2012 baseline scenario presented later in this section. Modeled datasets are calibrated against existing conditions, but do exactly reflect observed data. Forecasted roadway conditions from the MRMPO travel demand model should be compared to modeled base year conditions.
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Map 3-2: PM Peak Period Volume-to-Capacity Ratios, 2012 Observed Data
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Map 3-3: PM Peak Period Travel Speeds, 2012 Observed Data
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3.2.3 Travel Demand Scenarios: 2012, 2040 No-Build, and 2040 Build
MRMPO maintains a regional travel demand model in order to best assess the impacts of growth on future travel conditions. This evaluation tool differs from the datasets shown in Maps 3-2 and 3-3 that are based on actual count and recorded speed data in that it represents modeled roadway travel conditions, thus allowing for the evaluation of different combinations of socioeconomic and transportation scenarios. In this manner, the land use-transportation relationship can be evaluated through future socioeconomic data distributions and roadway infrastructure scenarios to identify specific problem areas. Future year roadway scenarios inform the transportation planning process by allowing agencies to identify the infrastructure improvements needed to support the region’s mobility needs.
In particular, the modeled scenarios allow for an assessment of anticipated roadway capacity deficiencies in 2040. The analysis also sheds light on whether roadway infrastructure improvements do in fact mitigate congestion and improve safety and mobility. It should be noted that the Trend Scenario represents the official forecast for the 2040 MTP. As discussed in Chapter 2, the Preferred Scenario reflects the desire of MRMPO member governments to address regional needs through changes in land use policy and potential transit investments, but such a scenario would require further action in order to be fully realized.
Modeled roadway network scenarios contained in the 2040 MTP include:
• 2012 Baseline reflects the modeled or simulated conditions found in the region today. This scenario forms a standard upon which future year scenarios can be compared and analyzed.
• 2040 Trend No-Build shows the impacts of anticipated socioeconomic growth on the “no build” roadway network, which represents what might happen were there to be no improvements to the infrastructure beyond the projects with committed funding through 201511
• 2040 Trend Build represents the same level and distribution of growth as the No-Build Scenario but with the additional roadway infrastructure implemented using funds available from 2015 to 2040
• 2040 Preferred Build represents the alternative growth scenario, or Preferred Scenario, with programmed roadway and transit investments
11 A “committed” transportation network includes projects currently programmed in the TIP and Capital Improvement Programs of local agencies. These projects are considered imminent as they are already in the project development and implementation phases, and as such, are likely not subject to change.
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3.2.3 (a) 2012 Baseline and No-Build Scenarios
The 2012 model baseline scenario is presented in Map 3-4. Areas of congestion can clearly be seen throughout the network. Key problem areas include the river crossings, as well as other bottlenecks – particularly in northwest Albuquerque – along high demand commuter routes approaching the interstates and river crossings. Locations where recent growth is straining the roadway network can be observed where sections of roadway are approaching and exceeding capacity. The baseline scenario is used to establish the reference point from which future scenarios and mitigation strategies are evaluated and considered for programming and implementation.
The Trend No-Build Scenario (see Map 3-5) depicts what the transportation system would look like in 2040 if no additional roadway projects were implemented after the 2015 program year, forming the basis for roadway infrastructure programming in the MTP. To be clear, the Trend No-Build is used to develop the final scenario rather than being a product unto itself; that is, it is an interim step toward developing a final scenario. Information from the Trend No-Build Scenario is used to identify roadway needs and the potential for infrastructure investments to improve regional mobility.
As the maps indicate, the patterns of congestion identified in the baseline conditions become more severe under the No-Build Scenarios, and significant levels of congestion can be observed in other areas in the 2040 timeframe. In effect, by 2040 nearly the entire Westside north of I-40 is congested, as is much of the Southwest Mesa. This is not surprising as many of these areas are expected to absorb future growth, meaning congestion issues in these areas would be compounded without the infrastructure investments identified in the MTP.
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Map 3-4: PM Peak Period Volume-to-Capacity Ratios, 2012 Model Baseline
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Map 3-5: PM Peak Hour Volume-to-Capacity Ratios, 2040 Trend No-Build Scenario
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Performance data for the baseline and 2040 Trend No-Build scenarios are summarized in Table 3-5, including vehicle miles traveled (VMT) measuring the quantity of travel; vehicle hours of travel (VHT), which indicates the time spent traveling; and vehicle hours of delay (VHD), which measures the time spent traveling below the posted speed. Also included are summaries of the magnitude of VMT under congested (i.e., over-capacity) conditions which represents the quantity of travel demand unmet by the available roadway capacity of the system (measured as the lane-miles of congested roadways), as well as peak hour average speeds by scenario. It is clear that under the No-Build Trend Scenario the region could expect significant increases in congestion not only at the river crossings, but also along north- south corridors across the metro area.
One noteworthy pattern is the fall in VMT per capita. Under the No-Build scenario, per capita VMT falls two percent by 2040, likely as a result to the shrinking percentage of the population participating in the workforce. However, other indicators reflect the severity of congestion that could be expected without investments over time. In the No-Build scenario, speeds decrease by 56 percent and VHT and VHD increase substantially above 2012 levels.
Table 3-5: Base Year and Trend No-Build Roadway Performance Summaries, PM Peak Hour
Percent 2040 Trend Difference, PM Peak Hour 2012 Baseline No-Build 2040 No- Build vs. 2012 VMT 1,850,545 2,879,976 56% VHT 50,778 179,454 253% VHD 12,927 117,639 810% VMT Over Capacity 105,926 805,869 661% Congested Lane-Miles 85.8 558.1 550% Average Speed 36.4 16.1 -56% Daily VMT/Capita 23.2 22.6 -2%
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3.2.3 (b) 2040 Build Scenarios: Trend and Preferred
To address the congested travel demand conditions noted in Table 3-5, modeled roadway improvements including additional lane expansions and roadway extensions (beyond those already committed) were developed for the 2040 planning horizon.
Conditions in the 2040 Build Scenario are much improved over the No-Build Scenario, demonstrating the benefits of the projects proposed by member agencies over the lifespan of the plan. In particular, areas west of the Rio Grande leading up to the river crossings see significant relief. Nevertheless, travel conditions are expected to worsen over time and compared to 2012 the level of cogestion observed in many places in the Trend Build Scenario is extremely severe. This is partiularly true across the region’s 13 river crossings, as well as key corridors on the Westside such as Unser Blvd, Paseo del Norte, and Paradise Blvd become highly congested. However, additional corridors on the Westside and South Valley such as I-40, north/south corridors west of the river, and the area surrounding the Rio Bravo Interchange also become congested by 2040. Maps 3-6 through 3-8 reflect the conditions in both the Trend and Preferred Scenarios.
While the differences in volume to capacity conditions between the Trend and Preferred Senarios may at first appear modest, the systemwide performance measures in Table 3-6 show that the Preferred Scenario performs significantly better overall in every criteria. The amount of time and distance traveled captured in VHT and VMT show major improvements over the Trend, and when one considers the magnitude of shift—the five percent difference in daily VMT represents an additional 100,000 vehicle miles in the Trend Scenario—the differences can be quite significant. Particularly noteworthy are the differences in vehicle hours of delay, where there is a 28 percent reduction in the Preferred Scenario compared to the Trend Scenario, and the amount of travel taking place under congested conditions (a 13 percent reduction in the Preferred Scenario). There is also an increase in travel speeds of 15 percent and VMT per capita reductions of four percent. In sum, the Preferred Scenario provides significant congestion reduction. One positive outcome exhibited in both of the 2040 Build Scenarios is the reduction in VMT per capita.
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Map 3-6: PM Peak Hour Volume-to-Capacity Ratios, 2040 Trend Build Scenario
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Map 3-7: PM Peak Hour Volume-to-Capacity Ratios, 2040 Preferred Build Scenario
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Map 3-8: Differences in Daily Volume between 2040 Trend and Preferred Scenarios
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Another important consideration is the differences in the distribution of travel between the Trend and the Preferred Scenarios. In the Preferred Scenario, more vehicle travel occurs in places that have excess capacity; in other words, roadways that have the ability to absorb additional traffic are the roadways that witness the greatest gains in traffic. In particular, the Preferred Scenario generates greater traffic volume in the core urban area of Albuquerque, while lower traffic volumes and reduced congestion can be observed across Rio Rancho.
Table 3-6: Trend and Preferred Scenarios Roadway Performance Summaries, 2040 PM Peak Hour
Percent 2040 Preferred Difference, PM Peak Hour 2012 Base Year 2040 Trend Build Build Preferred vs. Trend VMT 1,850,545 2,894,913 2,762,426 -5% VHT 51,876 132,932 110,133 -17% VHD 12,927 71,293 51,108 -28% VMT Over Capacity 105,926 644,967 562,041 -13% Congested Lane-Miles 85.8 429 370 -14% Average Speed 36.4 21.8 25.1 15% Daily VMT/Capita 23.2 22.7 21.9 -4%
3.2.4 Strategies to Reduce Roadway Congestion and Improve System Reliability
As discussed throughout the 2040 MTP, future growth in the region will place tremendous demands on the roadway network over the next 20 years, requiring a well thought-out response from MRMPO and all member agencies involved in the collaborative transportation planning and programming process. As shown in the travel demand modeling section, changes in the distribution of land use has a tremendous effect on reducing congestion; however, a wide range of supplemental roadway management strategies will be necessary to address the travel and mobility needs of the AMPA. An expanded roadway system and efforts to improve the efficiency of existing facilities, as well as a wider range of travel options, will be demanded by the traveling public, and improved management strategies will need to be developed by agencies in order to maintain or improve congestion levels over today’s conditions.
MRMPO has identified a range of strategies to address roadway congestion and mobility in the region. These strategies can be corridor specific or area/system-wide and can be summarized in the following categories:
• Additional network capacity, including lane restriping or roadway expansion to create additional lanes, roadway extensions, and construction of new facilities
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• Maintenance of the transportation network, including asset management systems to monitor the condition of roads and bridges • Transportation Systems Management and Operations (TSM&O) strategies that offer relatively low-cost improvements to enhance the functionality of the existing roadway system. Examples of TSM&O strategies being utilized in the AMPA include access management, signal timing optimization, and Intelligent Transportation Systems. • Travel Demand Management strategies that promote non-single occupancy vehicle travel and cooperation among member agencies on regional growth initiatives and land use solutions. For more details on TDM strategies, see section 3.12.
Many of these strategies are examined through the Congestion Management Process, an ongoing program facilitated by MRMPO with the participation of member agency staff. More information on the Congestion Management Process can be found in section 3.2.6.
Because growth will continue to outpace the amount of roadway expansion that can be funded and built under the region’s fiscally constrained transportation program, there is no practical way the region can build its way out of congestion by adding roadway network. A combination of network expansion, along with additional management and efficiency strategies will be necessary to serve the anticipated increase in travel demand. A multi-modal approach is therefore necessary, along with other travel demand reduction strategies, as part of a comprehensive program to reduce roadway congestion and improve system reliability. The remainder of this section will focus on roadways and efficient roadway operations.
3.2.4 (a) Roadway Capacity and Network Expansion
As the region grows, it is inevitable that new areas will need to be served with new roadway infrastructure. As such, roadway expansion will continue to be one of the region’s strategies to address travel needs. Further, current bottleneck conditions on the existing system will worsen in the future growth scenarios, necessitating strategic widening within the current network coverage. It is worth noting that not all base roadway capacity expansion must be achieved with large roadway widening projects. Often times, significant traffic flow improvements can be realized with smaller scale improvements at much lower costs such as roadway restriping, the addition of turning lanes, and other smaller geometric improvements.
The extent of the roadway network over the lifespan of the MTP can be evaluated through the number of total lane miles. As shown in Table 3-7, under the current fiscal and programming constraints the roadway network increases by a total of 7.9 percent by 2040 (compared to 51.3 percent growth in population in the modeling area). Map 3-9 depicts the roadway expansion projects programmed in the MTP, including new facilities, the expansion of existing facilities, and privately-funded roadways for larger master-planned developments. A full list of projects can be found in Appendix A.
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Table 3-7: Roadway Network Lane Miles
Percent Increase Network Expansion 2012 2040 (2012 - 2040) Network Lane Miles 4,169 4,500 7.9% Population 875,061 1,323,657 51.3%
Table 3-8: Lane Miles by FHWA Functional Classification for Urban and Rural Areas12
Urban Areas: 2012 2040 Interstates 547 564 Principal Arterials 1300 1575 Minor Arterials 620 666 Collectors 951 982 Rural Areas: 2012 2040 Interstates 466 457 Principal Arterials 9 9 Minor Arterials 43 43 Collector 527 659 Total Lane Miles 4147 4500
12 Data in this table is based on discrete projects in the TIP/MTP modeling scenarios and does not reflect the privately funded roadway projects in the Santolina, Volcano Heights, and Rancho Cielo Master Plan Areas as their phasing plans may not be as certain.
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Map 3-9: Roadway Network Expansion Projects included in the 2040 MTP
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Roadway projects programmed in the 2040 MTP are generally planned for areas where growth is expected and network expansion needs are greatest. Notable projects include:
• A significant number of north/south capacity enhancement/widening and network connectivity projects including: o the completion of Unser Blvd between Pajarito Rd on the Southwest Mesa and US 550 in the northwest part of the metro area with a minimum four-lane facility north of Senator Dennis Chavez Blvd o the widening on NM 528 in Rio Rancho between Southern Blvd and Northern Blvd th o the connection of 118 St from Pajarito Rd to the growing area north of I-40 o the continuation of Atrisco Vista Blvd in Rio Rancho north of Paseo del Norte to Southern Blvd • Major east/west facility expansion projects include: o a new river crossing along Morris Rd and interchange connection to I-25 to relieve NM 6 and serve populations in Valencia County o the widening of NM 6 west of I-25 o the widening of US 550 in the Town of Bernalillo th o improvements to Dennis Chavez Blvd, Paseo del Norte, Irving Blvd, McMahon Blvd, 19 Ave/Montezuma Rd, Progress Blvd, and portions of Idalia Rd and Northern Blvd in Rio Rancho • Ten new or reconstructed freeway interchanges located throughout the AMPA • Significant roadway network expansion for the following areas: o Mesa del Sol in southeast Albuquerque o lands of Westland/Atrisco Land Grant north of I-40, east of Atrisco Vista Blvd o Southwest and Northwest Mesa areas of Santolina in incorporated and unincorporated Bernalillo County o North I-25/Jefferson St corridor • Extensive network expansion within Rio Rancho, including widening projects or new facilities north of Northern Blvd including Paseo del Volcan, Broadmoor Dr, Loma Colorado Dr, Rainbow Blvd, and connections in the vicinity of City Center. Also included is a roadway extension to serve the new Sandoval County land fill due to be constructed within the near-term of the program.
3.2.4 (b) Asset Management and Maintenance of Roadways and Bridges
Another important consideration for improving the operations and management of the transportation system involves the physical condition of existing roadways. Maintenance is important because roads in poor condition result in increased occurrences of congestion, delay and vehicle damage as well as increased fuel consumption and travel time. Further, MAP-21 includes emphasis on infrastructure maintenance cost obligations in transportation programming. Specifically, state departments of transportation are now required to produce Transportation Asset Management Plans (TAMPs) that
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include inventories of pavement and bridge conditions, identification of management objectives and measures, and financial and investment strategies to address deficiencies across the system to sustain a desired state of good repair. As of this writing, the NMDOT is in the process of developing such a plan as well as a standardized methodology for monitoring conditions across all agencies. Although MAP-21 specifies that TAMPs involve at a minimum the interstates and the National Highway System (NHS), MRMPO is concerned with the entire system of roadways including the remainder of non-NHS roadways (minor arterials and collectors); therefore, MRMPO will play a key coordinating role to involve all member agencies within the AMPA to ensure that all roadways are included.
Pavement and Bridge Conditions
Although roadway conditions nationwide are generally reported to be in dismal condition—one-third of all roadways in America are in poor to mediocre condition and more than a quarter of all bridges are either structurally deficient or functionally obsolete according to the American Society of Civil Engineering’s Report Card on America’s Infrastructure—system preservation among MRMPO agencies is a high regional priority with a majority of mileage in “Fair” condition or better. According to updated pavement condition data from Bernalillo County, the City of Albuquerque, the City of Rio Rancho, and District 3 of the New Mexico Department of Transportation, pavement conditions in the region have for the most part improved in recent years, particularly in Albuquerque and Rio Rancho.
Figure 3-15: Pavement Conditions, 2008 and 201213
120%
100%
% Fair and 80% Above 2008
60% % Fair and Above 2012 40%
20%
0% Bernalillo City of City of Rio District 3 District 3 Non- County Albuquerque Rancho Interstate Interstate
13 Note that Bernalillo County ranks all of its roadways as “Fair” or “Good”
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Pavement management systems are established within agency public works departments to monitor conditions and ensure that timely maintenance treatments can be deployed to avoid roadway deterioration. The standard pavement life-cycle curve is shown in Figure 3-16, which shows how maintenance enhances the performance as well as lifespan of roads. Indeed, deferring roadway maintenance often leads to greater long-term costs, while preventive treatments are almost always cheaper than reconstructing a road.
Figure 3-16: Typical Pavement Preservation Curve
Source: Southern Slurry and Micro Surfacing Inc.
Agencies are currently in the process of refining their respective pavement management systems. Performance condition targets will be established for monitoring purposes, and although they are in development at the time of this writing, effort is currently being made by MRMPO to develop a coordinated methodology among its member agencies.
MAP-21 emphasis on asset management includes bridge infrastructure and the new legislation requires that no more than 10 percent of the total bridge deck area on NHS routes be structurally deficient. Although MAP-21 focuses exclusively on the NHS, MRMPO summarizes all bridge ratings on the roadway system within the AMPA (the NMDOT Bridge Section has the responsibility of maintaining bridges for the entire state of New Mexico). In the AMPA, 79 percent of bridges are ranked as structurally sufficient, and approximatly 21 percent of bridges are rated as either needing replacement entirely (one percent) or in need of rehabilitation (20 percent).
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Figure 3-17: Bridge Conditions in the AMPA, 2012
90% 79% 80% 70% 60% 50% 40% 30% 20% 20% 10% 1% 0% Replacement Needed Rehab Needed Sufficient
3.2.4 (c) Transportation Systems Management & Operations (TSM&O)
Despite programmed roadway projects and the increased emphasis on maintaining the existing infrastructure in good working order, there will still be areas of congestion resulting in significant reductions in mobility, safety, accessibility, and quality of life. Transportation Systems Management & Operations Strategies (TSM&O) identifies collective strategies that manage roadway system conditions to better utilize existing roadway capacity. Significant improvements to traffic flow, safety, and driver mobility can be achieved with these relatively low-cost strategies. For example, improved signage and lighting can be effective at addressing bottlenecks by improving driver awareness and decision-making.
TSM&O strategies are important because they maximize the use of existing transportation infrastructure which helps reduce the need for the far more costly option of building new infrastructure. They can be programmatic, implemented as stand-alone projects, or part of other roadway project activity as is often the case in the AMPA.
Access Management
Roadway access management is a strategy that can maximize throughput and benefit the performance of the overall transportation system by limiting conflicts from turning movements on important regional facilities. MRMPO maintains a set of Roadway Access Policies and works with member agencies to designate certain facilities as “limited access roadways” (see Map 3-10).
In order for any limited access designation to be effective, it is critical that local land use and access decisions be coordinated. Therefore, it is intended that each member agency with jurisdiction over these roadways should coordinate access to lands along the facility. It is important to strike a balance between the needs associated with the adjacent land uses and the overall performance of the roadway.
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Specific access management strategies include medians, side/rear access points between businesses, shared access, parallel/backage roads, and local land use ordinances to regulate access and commercial design practices.
Intelligent Transportation Systems
TSM&O strategies that involve the integration of data collection, archiving, and communications using advanced electronics or centralized monitoring to manage the operations of the transportation system are referred to as Intelligent Transportation Systems (ITS). The focus of ITS is to promote the coordination and integration of monitoring and communication devices to manage congestion and improve traveler information. Individual ITS installations can improve local traffic operations greatly; however, even greater benefits are realized when ITS strategies are combined to form an “intelligent infrastructure” where travel data is shared among those managing the operations of the system. More on ITS can be found in the following section.
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Map 3-10: Limited Access Facilities in the AMPA
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3.2.5 Intelligent Transportation Systems
Improving the efficiency of the existing roadway network is a major component of the 2040 MTP. Creative strategies are required given limited funding ability and the strain placed on many of the region’s roadways due to land use patterns and reliance on single-occupancy vehicles. One of the most economical sets of transportation strategies is ITS. ITS strategies entail a range of technologies to improve driver decision-making and enhance the flow of travel. The primary benefits of ITS include improved traveler safety, more efficient use of existing roadway capacity, and increased speed. ITS- related efficiency improvements are particularly significant because they allow greater through travel, which effectively adds capacity to the system without building new roads or new travel lanes.
ITS Planning and Prioritization in the AMPA
While ITS is implemented by individual member agencies, travel is by nature regional and there is a strong need to coordinate activities among various stakeholders in the AMPA. The primary mission of the ITS Subcommittee, comprised of representatives from public sector agencies across the metro area, is to promote and coordinate ITS deployment in the AMPA as well as to manage and maintain the AMPA’s Regional ITS Architecture. The ITS Subcommittee has established a role in the review and sometimes formulation of ITS projects included in the MTP and the TIP. Projects submitted for inclusion must meet the region’s goals and be consistent with the AMPA ITS Architecture. The group continues to work closely with the Congestion Management Process Committee to apply ITS project planning on congested corridors with a strong focus on multi-agency and multi-modal operations. This approach to project programming continues to reduce hurdles that may be caused by cross-jurisdictional coordination issues and will encourage a focus on “traffic operations” for projects on congested corridors.
The Intelligent Transportation Systems Corridors map (Map 3-11) is a product of the ITS Subcommittee and is updated periodically based on agency and regional ITS priorities. The map identifies specific ITS corridors planned for deployment, making the information accessible to planning and development review communities within the AMPA. This approach has proven effective in broadening awareness of ITS planning in the AMPA by identifying implementation opportunities for a broader range of transportation projects.
New in this MTP is a subset of ITS Priority Corridors that have been identified by the ITS Subcommittee to support ITS project development. An evaluation matrix (available on the ITS page of the MRCOG website) with ITS criteria was developed by the committee using existing ITS deployment status and other suitability measures to rank each corridor based on the most viable and or highest value ITS services. The prioritized corridors are consistent with the CMP and provide additional focus on improvements to critical travel corridors already identified within the AMPA transportation system.
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Map 3-11: ITS Corridors in the AMPA
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Regional ITS Architecture Regional Transportation Management Center The ITS applications employed in the AMPA vary in function and are designed to satisfy specific user needs identified through The AMPA is currently developing a input from member agency stakeholders. The AMPA Regional ITS Transportation Management Center Architecture, which serves as a guiding document and is required (TMC) that will be the first in the region of each region by the federal government, outlines these needs to house multiple-agency transportation and creates the framework from which to plan, design, deploy, operations in a single co-located facility. operate, and maintain Intelligent Transportation Systems. The The center will consolidate monitoring AMPA Regional ITS Architecture is now fully integrated with and transportation management MRMPO’s transportation planning process. This document was activities across jurisdictional recently updated to include current ITS needs and services and boundaries, including: add new stakeholders from the 2012 AMPA boundary expansion.
• Reporting of speeds and travel Periodic updates ensure that the document remains current with times during peaks regional and agency projects and priorities, as well as with • Adaptive traffic signal control and national standards. This Architecture, or maintenance plan, is flow enhancement systems performed in-sync with the TIP two-year programming cycle and • Coordination of emergency the ITS Subcommittee is involved in the TIP/MTP project review response for traffic incidents or process. All projects submitted for the TIP and MTP are reviewed other hazards to determine if they include ITS elements and are then mapped • Reporting of hazardous travel to the Architecture accordingly. This step ensures integration conditions such as inclement between projects in the TIP and MTP and guidance set forth in weather, crashes, or construction- the AMPA Regional ITS Architecture. The current version of this ahead notifications document is available on the MRCOG website.
The benefits could be substantial. For ITS project implementation must also follow a systems example, roadway incidents are one of engineering process in order to be certified by the NMDOT and the greatest contributors to congestion Federal Highway Administration. To assist member governments in the AMPA. A Regional TMC that in meeting this requirement, MRMPO along with the NMDOT ITS integrates highway response such as the Bureau and Federal Highway Administration have developed NMDOT’s HELP Courtesy Patrols can online training resources available through the MRCOG and shorten response times by as much as 25 NMDOT websites. percent on the interstates. The coordination of traffic response is often lacking, but the Regional TMC will improve communication, reduce traveler delays, and improve safety for all users of the transportation system.
Design is currently underway and the project is funded for construction in the current TIP.
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ITS Services in the ITS Architecture
The primary components of the ITS Architecture are referred to as ITS services. Potential ITS services include:
• Traveler information services provide real-time information on traffic conditions and travel times to motorists on roadways and to transit users on upcoming arrival times. These strategies help to improve traveler decision-making by providing critical information such as downstream congestion, incidents, travel times, next-bus arrival times, cautionary alerts from adverse weather conditions, etc. This information is made available to roadside devices, websites, or mobile apps.
• Network surveillance systems are those that monitor traffic, transit, and roadway conditions and convey a wide range of information ranging from travel conditions and alerts for travelers to system status and performance for the managing agencies. Devices include visual tools such as closed circuit television (CCTV), but also include passive data collection devices like traffic sensors using microwave, inductive micro loops, or Bluetooth frequency from mobile devices.
• Advanced transportation management and arterial operations systems focus directly on roadway and signal control to improve traffic operations in real time. Typically focused at locations where disruptions may be greatest, they generally result in improved safety and flow.
• Regional transportation and transit management/dispatch centers bring together many ITS services in one facility to coordinate responses to traffic incidents and travel emergencies through adjustments in signal timing, issuing traveler information, and communications with emergency responders. A co-location facility shared by multiple agencies promotes data sharing and the coordination of response. Such facilities also improve coordination of signal timing on corridors that involve multiple agencies. Data archiving efforts are also an important step in the ITS planning for operations process and can be streamlined through regional transportation management centers.
• Incident detection and emergency management improves roadway operations by connecting dispatch with network surveillance and traveler information systems to reduce response times and to ensure that correct equipment can be dispatched based on actual needs and conditions.
• Roadside weather information provides valuable alerts to travelers on the environmental conditions that affect the roadway surface and driving conditions. Information on ambient conditions (i.e., visibility, temperature, wind, and precipitation, as well as road-surface conditions such as ice, moisture and/or flooding) are disseminated via traveler information and roadway maintenance services.
• Public transportation operations and management benefits from ITS deployment through services that provide real-time monitoring of transit vehicle operations and dispatch services, trip planning information, and real time bus location/arrival time information available
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immediately to the user via mobile apps. Transit station security is also supported via the deployment and remote monitoring of surveillance cameras at transit stations.
• Commercial vehicle/freight management relies on ITS to ensure efficient movement of truck freight. According to the New Mexico Trucking Association, the traveler information ITS service that alerts truck drivers of hazardous conditions downstream has proven essential to the efficient and safe operation of freight within the AMPA and the state as a whole. Further, Automated Vehicle Inspections (AVI) reduces delays with passive inspection-station certification capabilities that allow responder-equipped freight traffic to enter the state and not be subject to costly inspection stops. In effect, a “bypass” of these stations is allowed while adhering to necessary permitting requirements.
• Workzone/construction management serves to minimize the impacts of construction zones by alerting travelers to anticipated delays, detouring, and other cautionary actions needed to avoid hazards in the construction zone.
Map 3-12 depicts the geographic coverage of current ITS real-time traveler services. In each of the corridors shown, travelers benefit from enhanced information and alerts such as travel time, hazards or hazardous conditions, or other contributors to congestion. Often times an alert is made far enough ahead so that travelers can make critical decisions to divert to a different route and avoid the congested area entirely. The map represents current deployments, although services will be extended to other corridors as agencies in the AMPA continue to implement ITS over time.
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Map 3-12: Network Coverage of ITS Traveler Information Services
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Future Directions in ITS
As member agencies deploy TSM&O strategies such as adaptive signal control, Bluetooth-enabled traffic operations monitoring, and real-time traveler information systems that notify drivers of downstream conditions and potential hazards, the collective result of these coordinated ITS efforts will be a network of seamless travel management that will provide wide benefits to travelers in the AMPA.
The implementation of the Regional Transportation Management Center means the AMPA is about to enter a new era in roadway operations and management. The project will integrate roadway and first responder operations and communications, allowing central management and coordination among all roadway operators in real-time. As a result, operators may optimize traffic signal timings and alert drivers to downstream conditions to improve traffic flow and driver situational awareness. The sharing of travel conditions data with the first responders community is also anticipated to result in tremendous improvements in traveler safety and improved incident response.
Federal requirements as part of the Real Time System Management Information Program (RTSMIP) will require further ITS investments and regional integration. Specifically, agencies must provide traffic monitoring and traveler alerts on roadway conditions including travel times, construction activity, weather conditions, and any other blockages that affect travelers. Interstates are subject to this rule in 2014, and select non-interstate roadways are subject to this rule once the Albuquerque Metropolitan Statistical Area (MSA) population reaches one million (the Albuquerque MSA is expected to meet this threshold within the near-term of the plan).
Emerging technologies also promise new opportunities for transportation systems management. High- technology applications involving mobile communications (2G, 3G, 4G networks), Bluetooth, WiFi, and 5.9 GHz Dedicated Short Range Communications (DSRC) are being utilized in “connected vehicles,” which are considered by the U.S. DOT as the “Next Generation ITS.”14 Advanced communications and sensors on vehicles allow for such things as crash avoidance, real-time alerts related to hazards and/or adverse weather conditions, icy roads, and “presence detection” such as pedestrians in crosswalks or other conditions to enhance driver awareness. Over the next few years, with support from most auto manufacturers, vehicles will be equipped with sensors and advanced communications technologies, which will facilitate a new era in transportation allowing significant improvement in roadway efficiency, safety, driver convenience, and overall management of the transportation system. Transportation agencies will need to accommodate these technologies in their infrastructure and operations, especially as the state of the practice migrates to include roadside communications infrastructure.
14 USDOT/ITS America Connected Vehicles Taskforce
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3.2.6 Congestion Management Process
According to the Texas Transportation Institute, congestion cost the city of Albuquerque and its residents a total of $288 million in economic value at a rate of $658 per commuter in 2012.15 Fortunately, congestion is not an all-day phenomenon in most of the Albuquerque metropolitan area. It is generally confined to river crossings and major corridors in the peak periods, although low speeds and long delays are increasingly common in parts of the metropolitan area where there are few transportation options other than driving and few routes to select from due to a lack of an efficient grid system.
Rather, the fact that congestion is not yet a widespread or all-day phenomenon provides the AMPA with an opportunity to ensure smart transportation decisions are made before the congested conditions projected in the 2040 Trend Scenario come to fruition. Federal regulations require that all Transportation Management Areas (TMAs), such as MRMPO, incorporate an “objectives-driven performance-based” Congestion Management Process (CMP) into regional transportation planning efforts. In practice a CMP is intended to assess the performance of the regional transportation system, identify the sources and extent of congestion, recommend appropriate strategies to manage congestion and improve mobility, and consider the benefits of proposed transportation projects and travel demand management programs. The CMP therefore fulfills an implementation role for the MTP by convening technical experts from member agencies across the region to enable better decision-making and prioritize the projects that will have the greatest regional impacts.
Understanding the Congestion Problem
How congestion is understood is evolving. Specifically, there is a growing body of research that points to the relationship between economic activity and congestion and that the cities with the highest gross domestic product (GDP) per capita also tend to have high levels of vehicle delay.16 In fact localized congestion may even be beneficial for businesses, or at least is a by-product of activity and an indication of the desirability of a place.17 Congestion metrics are also rightly criticized for comparing travel times to a set of abstract conditions that only exist in pre-dawn hours when few cars are on the roads.18
15 Texas Transportation Institute, “Urban Mobility Report 2012” 16 Findings of Eric Dumbaugh, professor of urban studies, Florida Atlantic University, http://www.citylab.com/commute/2012/06/defense-congestion/2118/ 17 Matthias Sweet, “Do Firms Flee Traffic Congestions?” Journal of Transport Geography, February 2014 18 Todd Litman, VTPI, “Congestion Costing Critique: Critical Evaluation of the ‘Urban Mobility Report,’” June 13, 2014
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CMP Requirements • Identify congested locations • Determine the causes of congestion • Develop and propose mitigation strategies • Evaluate the impact of congestion management strategies on recently implemented projects
Congestion is not always associated with lack of mobility; it may simply mean that traffic is moving slower than the ideal. (The only true way to make traffic go away is to make people go away as well!) This means that congestion is something to be managed rather than eliminated. What is more, trends in vehicle miles traveled suggest that demand for roadway space is not likely to grow indefinitely, as had been previously predicted. Rather, there is less need to build new roads to accommodate future growth as driving rates decrease over time. In fact, there are parts of the Albuquerque metro area where daily traffic volume has been declining at such a steady rate that roadways in these areas may be good candidates for removing lanes and reducing capacity.
Recurring versus Non-Recurring Congestion
Recurring congestion refers to the type of Non-recurring congestion results from short- congestion that happens on a regular and even term and generally unpredictable events that predictable basis. The main causes of recurring disrupt vehicle travel. Examples of non- congestion are when there are more vehicles recurring congestion include crashes, disabled than a roadway was designed to handle, or vehicles, work zones, adverse weather, and inefficiencies in roadway design and signal timing special events. that result in lower speeds than ideal. According
to the FHWA, half of all congestion is recurring.
If congestion is to be managed rather than eliminated, congestion management really means identifying the most effective transportation improvements given the existing conditions and available options. In other words, addressing congestion should really be about making the best out of a particular situation.
A wide range of congestion management strategies may be called upon to address both recurring and non-recurring congestion. For example, an operations and management approach incorporates the use of technology to maximize system performance and efficiency while ensuring safety and reliable conditions for travelers. Other strategies include properly located capacity expansion projects, incident response, access management, and travel reduction (or travel demand management) programs. The ongoing challenge for the CMP is to integrate those strategies into the regional planning process and encourage local governments to implement congestion management techniques in appropriate locations.
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3.2.6 (a) Data Collection and Performance-Based Planning
CMP Congested The foundations of CMP are data collection, and MRMPO collects and Corridor Rankings analyzes a series of data that are designed to measure recurring and
non-recurring congestion. The three principal data elements for the 1. Alameda Blvd CMP include: 2. Coors Blvd 3. Bridge Blvd • Volume-to-capacity (V/C) ratios – used to compare the 4. Isleta Blvd observed traffic volume on a roadway segment to the intended 5. Wyoming Blvd roadway capacity 6. Montaño Rd • Speed differential – used to understand travel time and delays 7. San Mateo Blvd/Osuna Rd associated with roadway segments and corridors based on the 8. Montgomery Blvd difference between observed speeds and posted speed limits or free 9. Jefferson St flow speeds 10. Gibson Blvd • Crash rates – frequency of crashes at individual intersections 11. Paradise Blvd compared to the regional average 12. Central Ave 13. Paseo del Norte Travel time and traffic counts data in particular are available by time of 14. Eubank Blvd day and can be used to determine whether the congestion is confined 15. Arenal Blvd to certain times of the day and whether it is the result of a bottleneck 16. Lomas Blvd or a prolonged stretch of congested traffic conditions. The congestion 17. Rio Bravo Blvd data serves as a baseline for understanding conditions by location and 18. Louisiana Blvd highlighting the corridors that merit attention. 19. US 550 20. 2nd St The data is collected across the metropolitan area on a recurring basis, 21. 4th St but special attention is paid and additional analysis is performed on the 22. NM 6 30 corridors and two Interstate facilities that comprise the CMP 23. NM 528 congested network. The data is used in the development of a CMP 24. Menaul Blvd corridor rankings table that indicates the facilities that experience the 25. Tramway Blvd highest overall levels of congestion. The CMP corridor rankings are also 26. Southern Blvd compiled into a biannual document entitled “A Profile in Congestion” 27. Broadway Blvd and are an important criterion in the Project Prioritization Process. 28. NM 47 MRMPO data collection efforts have expanded immensely since the 29. Unser Blvd 2035 MTP was adopted to now include a wider network of corridors 30. Irving Blvd than previously possible, as well as data on transit and non-motorized
travel modes. Such data is critical when determining how meaningful a For more details on the role these modes play in the regional transportation system. Similarly, corridors and the scoring questions of whether the region should focus on efficiency methodology, see “A Profile in improvements or expand multi-modal opportunities can only be better Congestion” on the CMP page answered with an understanding of how residents of central New on the MRCOG website. Mexico actually travel around the region.
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Regional Transportation Surveys
A 2012 transit on-board survey undertaken by Rio Metro and MRCOG provides rider characteristics and travel patterns, while the 2013 Mid-Region Household Travel Survey observed travel patterns for residents of nearly 2,500 households, illuminating how behavior varies according to age, income, household size, and place of residence, among other factors. Regular boarding and alighting surveys shed light on how transit ridership is distributed across the network and enable calculations of regional and corridor-level transit mode share. Although these efforts were not undertaken specifically for CMP purposes, they are tremendously important for understanding how residents travel around the region. More information on the findings of these surveys can be found in section 3.1.
3.2.6 (b) Congestion Analysis and CMP Products
The various data shed light on the nature of congestion for the segments of each corridor and the way the transportation system is utilized. For instance, if congestion is the result of high traffic volumes and large numbers of long-distance trips, then appropriate strategies may include reduced roadway demand through transit service expansion, enhancing alternate modes, implementing other travel demand management techniques such as ridesharing or telecommuting, as well as capacity expansion under the right circumstances. By contrast, if congestion is the result of delay and slow speeds, then roadway inefficiencies may be addressed through operations improvements such as ITS deployment, the introduction of acceleration/deceleration lanes, or access management which can reduce the number of vehicles or turning movements on a roadway. Operations and maintenance strategies such as traffic signal optimization or installation of adaptive traffic signals can be effective for both types of congestion by improving the flow of traffic and increasing speeds, effectively adding capacity by moving more vehicles in the same amount of roadway space.19
Alameda Travel Time Study
In fall 2013, MRMPO conducted a study on the impacts of a series of adaptive traffic signal control devices installed by Bernalillo County along a two-mile stretch of Alameda Blvd between Loretta Drive and 2nd Street. Adaptive signal control technology offers a flexible approach to traffic management by adjusting the duration of the traffic signal according to observed travel patterns. This serves to distribute signal “green time” equitably for all travelers through measures such as extending signal lengths when traffic is heavy and reducing wait times at signals when traffic is light. Ultimately these adjustments can serve to reduce congestion and create smoother traffic flows.
The MRMPO study offered a chance to test this technology locally and determine how effective such a system might be in addressing transportation challenges in the metro area. The study compared driving
19 Much of the analysis regarding appropriate strategies and means of quantifying congestion occur with the direct input of the CMP Committee. The CMP Committee is comprised of technical experts from member agencies in the region who meet on a monthly basis to discuss regional approaches and strategies and coordinate efforts between agencies.
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conditions for multiple days when the previous traffic signal timing plan was in place to multiple days one week later when the adaptive signals were activated. The study also calculated the impacts on side streets to investigate whether or not the adaptive signals had an impact on vehicles trying to cross or turn onto Alameda Blvd.
Remarkably, the study showed clear improvements for travelers on both Alameda Blvd and along the side streets analyzed (Rio Grande Blvd, 4th St, and 2nd St). The system proved most effective in the peak direction and in the peak commuting periods, the times and the direction when the greatest numbers of vehicles are on the roads. Although the system had less impact in other times of day, such as mid-day, this was generally due to the fact that average speeds were already at reasonably high levels.
Impact of adaptive traffic signals along Alameda Blvd:
• Reduction in travel time in eastbound direction (AM peak period): 25% • Reduction in travel time in westbound direction (PM peak period): 20% • Average reduction in travel time for all Alameda Blvd travelers: 10%
The most surprising finding was that at the same time travel times improved on Alameda Blvd, drivers on side streets in the study area spent on average 11 fewer seconds waiting to cross Alameda Blvd when the adaptive traffic signals were activated than under the previous signal timing plan. The study supports that the use of such technology is a promising and cost-effective strategy for improving travel conditions and getting the most out of the existing roadway system.
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Map 3-13: CMP Network and Corridor Rankings
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CMP Products20
An important part of the CMP is to disseminate data and related analyses to local government agencies. These actions take place through meetings and coordination with the CMP Committee, presentations to local government agencies, and a range of CMP products, including the following:
• CMP Corridor Rankings Table • “A Profile in Congestion” – a companion document to the rankings table that provides key data and roadway characteristics for each of the corridors on the CMP congested network • Strategies Toolkit – a document describing key congestion management strategies and the locations and situations in which implementation is appropriate • Strategies Matrix – a tool for member agencies to identify the most appropriate and highest priority congestion management strategies for each of the corridors in the CMP congested network. Although the strategies matrix was developed for use with the Project Prioritization Process (see section 4.1), it can be used as a reference by local governments in the development of all transportation projects. • Various reports and studies completed by MRMPO through the Congestion Management Process are posted on the MRCOG website
Project Prioritization Process
Integrating the CMP into the metropolitan transportation planning process and into regional decision- making is a critical and ongoing effort. The most significant result of these efforts is the Project Prioritization Process (PPP), which grew out of the CMP Committee’s desire to see federal transportation dollars allocated in ways that would have the greatest impact and best address regional transportation needs.
The Project Prioritization Process is an objective, data-driven tool for evaluating transportation projects proposed for inclusion in the short-range TIP and identifying the projects which best address the needs of the region. Many of the criteria in the PPP utilize data analyzed and collected through the CMP, and the CMP Committee oversees periodic updates to the Project Prioritization Process. In particular, the PPP highlights projects that address congested corridors and bottleneck locations. The greater the severity of congestion or safety risks in the project location – as measured through congested corridor rankings, segment level congestion (based on V/C ratios and speed differential data), and crash rates – the higher the number of points awarded to a project. Other data that are collected as part of the CMP and that have been integrated into the PPP include transit ridership data, which is added to traffic volume to comprise the People Movement criterion. For more details on the Project Prioritization Process, see section 5.1.
20 All CMP products are available on the Congestion Management Process page of the MRCOG website.
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Current Efforts and Future Directions
Initial CMP efforts focused on data collection and developing systematic methods for evaluating congestion across the metropolitan area. These methods have largely been completed and put to immediate use through the Project Prioritization Process. The next phase of analysis will be to assess before and after conditions for individual projects on a recurring basis (as in the Alameda Travel Time Study) and to better track regional conditions over time. Through these efforts, MRMPO is well- positioned to comply with the requirements for performance-based planning in MAP-21 and to provide as much information as possible for member agencies during project development.
As new methodologies emerge and technology advances, there are also opportunities to expand data collection and transportation-related analysis. In particular, data collection efforts can include a range of alternative mode data, either for specific studies or as part of comprehensive efforts to understand regional bicycle travel patterns and areas of concentrated pedestrian activity. MRMPO is exploring opportunities to collect bicycle volume data now available through commercial vendors, as well origin and destination data for vehicle travel.
MRMPO recently completed the Transportation Analysis and Querying Application tool (TAQA) that makes traffic counts and travel time data publicly available and automates the calculation of regional performance measures such as vehicle hours of delay (see Figure 3-18 and http://taqa.mrcog-nm.gov). Aside from improving the accessibility of data to users, TAQA allows MRMPO to understand how roadways perform over time and the long-term impacts of infrastructure improvements. Particularly noteworthy is the scope of data available through the tool. Since it can now be collected through mobile devices, regionwide travel data is now inexpensive and comprehensive, and through TAQA can be easily archived and queried.
Figure 3-18: Transportation Analysis and Querying Application
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3.3 Freight and the Movement of Goods and Services
According to the American Association of State Highway and Transportation Officials (AASHTO), the transportation sector, which In a Nutshell… includes highways, railroads, waterways, ports and airports, and freight is a $1.2 trillion industry that generates eight percent of the nation’s Takeaways: There are important jobs and supports industries that make up 84 percent of the economy. implications tied to the Therefore, the quality and functionality of a region’s infrastructure are movement of goods, including critical the delivery of basic necessities such as groceries. Efficient The Albuquerque region’s freight system delivers goods into, within, movement of freight can ensure and out of the region. These functions are not only a vital concern to a competitive edge and improve local and national economies, but also to residents who need basic the region’s economic outlook. necessities like groceries or gasoline. The freight industry is more than At the same time freight trucks and trains, but includes important aspects like fleet management, movement both contributes to logistics, and warehousing that facilitate goods movement to trucks, and is subject to regional trains and air deliveries that distribute products where they need to go. congestion and related The economic implications of delays and congestion are well- transportation challenges established. Ensuring that the AMPA’s transportation system and Components: This section infrastructure are reliable creates a competitive edge by providing discusses both truck and rail efficient freight movement and the ability to deliver products at a lower freight and reviews existing cost. For consumers in the area, improved access to these goods raises conditions, issue areas and how their standards of living. Synchronizing multimodal freight movement newly deployed technologies are and enabling the transfer of goods between different freight modes to improving freight movement. A occur more seamlessly will result in a more efficient and economical primary freight network is freight transportation system. Altogether, supporting the region’s identified (page 3-61), as well as freight system plays a critical role in meeting the MTP’s goal of opportunities to improve freight supporting the region’s economic vitality. movement within and across the region. Goals and Objectives: Supporting efficient freight movement and enhancing the flow of goods and services are explicit objectives of the Economic Vitality goal of the 2040 MTP.
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3.3.1 Truck and Freight Roadway Operations
Albuquerque is located at the intersection of the I-40 and I-25 interstate facilities, which NMDOT identifies as the major freight-designated routes within the AMPA for truck freight. According to a July 2013 report from the American Transportation Research Institute (ATRI), this important intersection is number 121 of the 250 most congested in the United States. I-40 serves as a major cross-country route because it connects the Port of Long Beach, CA, to eastern markets. In addition, hours of service regulations require trucks to drive no more than 11 hours per day and work no more than 14 hours. This makes New Mexico a logical stop for trucks driving east from California. In addition, Albuquerque is about 12 to 14 hours from Houston, TX, another major port. According to a recent report by the Brookings Institute and JP Morgan Chase, Albuquerque falls within the top quintile of interstate traders with a 91.2 percent interstate share. Altogether, this means the AMPA plays a crucial role linking the country’s freight network, and preserving and maintaining interstate facilities is of significant national and regional interest.
Vehicle count data from MRCOG’s Traffic Monitoring Program shows that the overall percentage of commercial vehicles (those vehicles larger than passenger car, truck, or two-axle six-tire truck) on the AMPA transportation network is about eight percent. However, when considering the proportion of commercial vehicles on I-40 through the AMPA, the percentage jumps to nearly 25 percent, indicating the importance of interstate freight travel along the I-40 corridor (data from New Mexico Department of Public Safety, Motor Transportation Division shows that the vast majority of these trucks [85-90 percent] are crossing the state without conducting local deliveries). Commercial vehicle counts on I-25 are not nearly as high, with 11 percent of all traffic volume classified as commercial vehicles at the southern boundary of the AMPA.
Figure 3-19: Percentage of Commercial Vehicles out of Total Traffic Volume 30%
25% 25%
20%
15% 11%
10% 8%
5%
0% Overall I-25 I-40
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According to the Federal Highway Administration’s Freight Analysis Framework (FAF), I-40 at the western AMPA boundary had annual average daily truck traffic of 8,670. By 2040, that number is projected to increase by 240 percent to over 20,000, comprising over 43 percent of all traffic. I-25 at the northern boundary of the AMPA had annual average daily truck traffic of nearly 3,900 trucks and is forecasted to reach over 6,300 trucks in 2040. This level of growth in truck freight travel not only indicates the value of maintaining the roadway infrastructure in the AMPA in good working order, but will place additional strain on that same infrastructure and contribute to growing congestion challenges.
There are no exclusive truck-only lanes within the AMPA, meaning that truck traffic is not given any priority and must operate on the same roadway lanes as general purpose vehicles. With no truck lanes programmed in future years of the MTP, the amount of freight traffic operating under congested conditions (measured in lane miles of roadway) becomes a serious issue that will adversely affect trucking operations including lengthened delivery times and increased operational costs. Figure 3-20 depicts the current and anticipated growth of truck freight travel taking place under congested conditions for each scenario in the MTP.
Figure 3-20: Percentage of the Commercial Vehicle Network Operating under Congested Conditions
25.0% 22.5%
20.6% 20.0%
15.0%
10.0%
5.0%
0.6% 0.0% 2012 2040 Trend 2040 Preferred
Several major freight companies maintain facilities in Albuquerque, often for the purpose of “breaking” full loads for local delivery and assembling them for outbound trips. UPS operates a fueling facility in Albuquerque and receives approximately 25 trailers per day at a rail-truck intermodal facility near Second St and Woodward Rd in Albuquerque’s South Valley. These trailers are driven to the UPS yard at Comanche Rd and I-25 to be broken or transferred to the interstate system. Additionally, FedEx maintains separate facilities for FedEx Freight, FedEx Ground, and FedEx Air. FedEx Freight is located on the Westside near Unser Blvd and Central Avenue, FedEx Ground is located near Second St and Montano Rd, and FedEx Air is located at the Albuquerque Sunport.
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Map 3-14: Primary Freight Network and Truck Restrictions
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To help prioritize freight-related improvements and understand truck travel patterns, MRMPO developed a primary freight network, found in Map 3-14. The map also identifies the various locations around the AMPA where truck freight travel is restricted. Such restrictions have important implications, particularly for deliveries across the Rio Grande. Primary corridors include I-25, I-40, Coors Blvd, NM 528, Alameda Blvd, and several other river crossing facilities.
An analysis of several of the primary freight corridors was performed for the 2012 Base Year and the Trend and Preferred Scenarios using the travel demand model. A summary of the basic corridor operating conditions including total volume/capacity and highest daily volumes are provided in Table 3- 9. Due to the fact that there are no specific truck lanes or other preferential roadway designations for freight traffic in the AMPA, commercial vehicles traveling these corridors are subject to the same traffic levels and congestion as other motorists. Conditions are generally worse in the Trend Scenario than the Preferred, although the overall network volumes are approaching capacity in both scenarios.
Table 3-9: Performance Measures on Primary Freight Corridors, 2012, Trend, and Preferred Scenarios
Highest Daily Volume on PM Peak Hour V/C Ratio Corridor Freight Corridor 2040 2040 2040 2040 2012 2012 Trend Preferred Trend Preferred
US 550 0.64 0.85 0.87 24,765 44,119 42,166 NM 528 0.69 0.9 0.88 38,446 52,382 50,473 Coors Blvd - North of Central Ave 0.74 0.89 0.89 41,215 53,188 53,447 Coors Blvd - South of Central Ave 0.4 0.79 0.71 15,523 26,011 23,108 Central Ave 0.31 0.61 0.62 12,888 26,531 24,938 Bridge Blvd 0.59 0.89 0.87 23,454 29,665 28,644 Rio Bravo Blvd 0.62 0.78 0.76 19,966 23,827 23,490 Alameda Blvd 0.86 0.78 0.76 28,178 23,827 23,490 Interstate 25 0.7 0.89 0.87 88,205 118,239 117,846 Interstate 40 0.63 0.74 0.73 95,158 119,809 118,637 Network Average 0.62 0.81 0.8 38,780 51,760 50,624
General Freight Issues
During outreach efforts with local freight stakeholders, long-haul truckers voiced concern that the interstates are not functioning as well as they need to make timely and efficient deliveries. Congestion is a major concern, while safety is a high priority among local freight stakeholders. Other observations and concerns among the region’s freight community include the following:
• Insufficient truck parking and a lack of rest areas to accommodate overnight stays • Freeway closures due to incidents are increasingly costly to carriers (and ultimately consumers)
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• Traffic delays are compounded by the inability of tow vehicles to reach and clear disabled vehicles • Poor communication with trucking associations and drivers about truck restrictions • Incident management – lack of information during weather or other closures results in costly delays and could be mitigated through the following actions: o Truck detouring – direct trucks to appropriate stops when incidents occur o Staging rest areas – identifying appropriate staging areas for trucks when incidents occur • Insufficient turning radii for certain truck sizes • Lack of education on safety and knowledge about truck blind spots
Truck/Freight Restrictions
Regional freight stakeholders shared common concerns, often related to freight restrictions dealing with weight and river crossings:
• Weight restrictions: There are truck restrictions on facilities that make local trips longer and more costly than they need to be. Additionally, time of day/day of week restrictions further hamper the movement of goods and compound congestion at critical times. Weight restrictions on the river crossings at Paseo del Norte and Montaño Rd mean that shippers must route their fleets across I-40 or Alameda Blvd to serve high-growth markets on the west side of the Rio Grande. • River crossing restrictions: Due to bridge heights and certain areas that do not have infrastructure designed to support freight movement, crossing the Rio Grande is one of the greatest challenges facing local haulers. The lack of truck-accessible bridge crossings means that under interstate closures, Alameda Blvd – the sole arterial bridge crossing between I-40 and US 550 – takes on a disproportionate volume of truck traffic. • Truck restrictions/lack of alternative routes: A further impediment to freight movement on the Westside is the restriction on Unser Blvd from Ladera Rd to Rainbow Blvd. This restriction effectively makes Coors Blvd the sole north-south arterial for freight movements west of the river. Atrisco Vista Blvd, well west of significant commercial development, functions as an arterial route for through movements to markets in far northwest Albuquerque and Rio Rancho.
These concerns are currently being addressed by transportation officials through better outreach with the trucking industry. In particular, information related to truck restrictions is being transmitted to the New Mexico Trucking Association for dissemination to carriers.
MAP-21 Freight Requirements
In recognition of the critical role that transportation infrastructure plays in regional and national economic performance, MAP-21 places increased emphasis on assessing local freight-related needs. While the U.S. Department of Transportation has not yet released the final MAP-21 national vision,
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goals, or performance measures for freight,21 early guidance has been identified for future interest areas and priorities related to freight movement, which include:
• Financing shortfalls • Aging infrastructure • Demographic trends, since growing population in urban areas will increase congestion and affect freight movement • Enhancement of technology operations • Global/domestic commercial and economic trends creating new challenges for meeting freight Demand and passenger transportation needs • Shifting energy economies and fuel sources, which create significant disruptions as well as opportunities for innovation • Impacts to infrastructure resulting from climate change
MRMPO has access to system-wide speed data, vehicle hours delay, percentage of the network in congested conditions, congested conditions along freight corridors and rivers crossings. This information will enable MRMPO to create baseline freight data that can be monitored and potentially integrated as freight performance measures.
Other Relevant Freight Laws
• Jason’s Law (MAP-21 Section 1401): Originally passed in 2012, this law now is included in MAP and is meant to address the lack of safe rest areas. It requires the U.S. Department of Transportation, in consultation with state motor carrier safety personnel, to conduct a survey and assessment identifying available truck parking facilities to ensure there are an adequate amount of safe rest areas for truckers. Specific results of this survey as it relates to New Mexico have not yet been released. Additionally, this law enables federal funds to be utilized for these types of improvements. Federal funds eligible for truck parking projects include Highway Safety Improvement Program (HSIP), Surface Transportation Program (STP) and National Highway Performance Program (NHPP). • Hours of Services Final Rule for Truck Drivers: This regulation is mandated by the Federal Motor Carriers Safety Administration (FMCSA) and was published in the Federal Register on December 27, 2011. The regulation requires that commercial truck drivers may not drive more than 11 hours per day and work no more than 14 hours per day. It also limits the maximum average work week for truck drivers to 70 hours and requires truck drivers to take a 30-minute break during the first eight hours of a shift. Additionally, if a truck driver reaches the maximum 70 hours of driving within a week, he or she may resume only if the driver rests for 34 consecutive hours, which includes two nights of sleep from 1:00 to 5:00 AM. The provisions took effect in July 1, 2013.
21 MRMPO has access to system-wide speed data, vehicle hours of delay, percentage of the network in congested conditions, congested conditions along freight corridors and rivers crossings, enabling MRMPO to create baseline freight data that can be monitored and potentially integrated as freight performance measures.
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3.3.2 Intelligent Transportation Systems & Freight
Utilizing and integrating ITS with freight movement is critical to achieving efficient freight movement and supporting the region’s freight network. According to the New Mexico Trucking Association, the Traveler Information ITS Service that alerts drivers of hazardous conditions downstream has proven essential to the efficient and safe operation of freight movement within the AMPA and the state as a whole. For example, alerting freight operators of impending lane reductions, closures, or inclement weather conditions allows them to plan their route accordingly to avoid or minimize any associated delays. Many freight corridors have no viable or parallel route alternative within the AMPA, which necessitates a decision to detour far upstream, sometimes hundreds of miles away. The I-40 corridor through the Tijeras Canyon is a particularly weather-sensitive area that suffers full closures due to snow and/or ice conditions during the winter season. In the event of closures, staging areas also become an issue as trucks must exit the freeway to find adequate areas to lay in wait until the facility is passable.
The NMDOT and area enforcement entities continue to work with the motor carriers to identify viable options (such as the New Mexico State Fairgrounds) and thus far have had success. The dissemination of real time travel conditions via NMRoads.com, dynamic message signs, and highway advisory radio have proven invaluable to truckers en route and far-enough upstream so that, in most cases, decisions can be made to either detour or stop at a location with adequate services.
Freight/trucking commodities is a regulated activity subject to certifications on weight/load, safety records, and other permitting as required by each state. Inspection stations are typically located at ports of entry and are administered by state motor transportation divisions. In order to minimize delay these stops may incur on trucks en route, the New Mexico Motor Transportation Division has employed an automated vehicle identification (AVI) system, PrePass, that allows for pre-screening at designated inspection stations, thus minimizing unnecessary stop delay. The designated PrePass weigh stations in New Mexico are located along the I-25 corridor at Anthony and Raton, the I-40 corridor at Gallup and San Jon, and at the I-10 corridor at Lordsburg. Based on 2012 PrePass activity data, approximately 85 to 90 percent of all trucks entering the state “pass through” along these interstate corridors. Automated systems like PrePass help to ease congestion around inspection facilities and result in operating cost savings for freight operators. Ultimately these cost savings are passed on to consumers.
Another encouraging example of ITS utilization is the Pro-Miles software, currently being tested by the Department of Public Safety, Motor Transportation Division. This software would replace the automated commercial system (ACS), which is used to track, control and process the movement of all goods and especially goods imported into the United States. ACS is considered an antiquated and slow permitting system. All commercial motor carrier vehicles that pass through New Mexico Port of Entry Stations must obtain clearance certifications. Pro-Miles software allows for faster management of the permitting process when paired with new scanning technology such as license plate readers. Since this software is electronic, acquiring the required freight trucking permits to enter, leave, or travel through New Mexico would require less time and freight trucks would not be required to stop at each state point of entry. Pro-Miles has the capability of interactive routing, so the software can alert truck drivers upstream of an
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accident and of potential detours. This software will also enable improved data collection about freight truck routes and congested areas. Full deployment of Pro-Miles is anticipated for March 2015.
3.3.3 Rail Freight
While a majority of the AMPA’s freight movement is via truck, addressing other freight modes such as rail is critical to addressing the MTP’s goal of furthering economic vitality. New Mexico’s rail system includes 2,055 miles of railroad right-of-way, and like truck freight, plays an integral role in connecting both the east and west coasts. In 2009, New Mexico’s rail system hauled about 127 million tons of goods valued at $8.5 billion and supported numerous jobs needed to maintain rail lines and service trains.
The ability to transfer between modes will also become increasingly important, and identifying strategies to create more seamless multimodal functionality between and among freight modes should be a high priority for the region. A massive rail freight facility near the border with Chihuahua, Mexico opened in May 2014, at Santa Teresa, NM. This freight rail hub is about 2,200 acres and will serve as a significant inland port where goods will be moved between rail and truck. While this facility is not within the AMPA, it is important to note because it could eventually lead to an increase in truck freight movement on the I-25 corridor, including in the AMPA.
For now, this is the closest trans-loading facility to Albuquerque. However, a large-scale intermodal logistics center just north of Belen in the Rancho Cielo area has also been considered. This facility would have a substantial impact on freight movement in the region. Such intermodal transfer freight facilities enable more efficient freight movement when goods are transferred from rail or large, interstate semis to smaller distribution trucks. They are therefore a key ingredient in developing the local manufacturing sector. Logistics centers typically cover several thousand acres and host freight and distribution centers for a variety of shippers. According to the master plan for the site, local, national, and international rail, road, air and seaport distribution services are anticipated.
More immediately, in early December 2014, the Albuquerque area’s first railroad facility broke ground with completion anticipated in early 2015. This facility will sit on 36 acres off south Broadway Blvd and will enable a more direct transfer and movement of freight goods such as fluids, building materials, and heavy equipment to BNSF’s coast-to-coast lines. Understanding and anticipating the implications of each of these facilities can enable the AMPA to plan ahead and reorient freight strategies and prioritize freight investment areas.
NMDOT released the New Mexico State Rail Plan in September 2013, which reviewed existing conditions and identified goals and objectives for freight and passenger rail in New Mexico. The multiple uses required of rail infrastructure make it difficult to attract new or expanded passenger service within New Mexico as well as industrial development. Rail freight is further complicated by the fact that most facilities are privately owned.
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The State Rail Plan focuses largely on maintaining existing state-owned infrastructure instead of expanding or providing new passenger rail services. However, the plan outlines a rail vision to make New Mexico competitive and further the state’s economic development opportunities. Specific projects are highlighted within improvement areas and prioritized for future investment. Projects identified in the AMPA are listed in the following section.
3.3.4 Strategies and Recommendations
The 2040 MTP calls for freight considerations to be an important part of infrastructure decision-making in the region. Freight is currently included in the Project Prioritization Process for TIP selection, where projects are evaluated on whether projects contain freight-specific strategies or will be of benefit to freight movement, and whether there is any benefit to primary freight corridors. An important opportunity to consider regional freight movement also lies in the development of the Regional Transportation Management Center (see section 3.3.2 on Intelligent Transportation Systems for more details).
The NMDOT is completing freight plan as part of its statewide long-range transportation plan. The plan could provide a starting point for identifying infrastructure and programmatic priorities specific to the AMPA. Particularly important could be establishing formal processes for monitoring freight needs and existing activity levels, as well as opportunities for maintaining and building relationships with freight stakeholders and educating and informing members about particular freight policies, programs, or projects and how they could affect freight movement in the AMPA.
Based on forecasted information, early guidance from the U.S. DOT, and regional meetings with freight providers about existing challenges, the following recommendations and preferred scenarios were identified to improve conditions and performance on the region’s freight network. These recommendations will help further the region’s and state’s economic vitality by supporting more efficient multimodal freight movement.
Recommended Truck Freight Policies and Programs for the Region
• Size and weight restrictions: Size and weight restrictions across the region are not consistent. Creating consistency among size and weight restrictions would simplify and thereby lower the cost of large-item shipping. • Delivery time management: Shippers and customers increasingly rely on off-peak delivery of goods to businesses which is accomplished by allowing regular vendors after-hours access. Modifying restrictions to allow weekend and after-dark travel would help keep large trucks off the roadways during peak periods of congestion when their presence disrupts traffic flows. • Improved coordination/communication: NMDOT and other agencies should be required to consult with freight providers during early stages of roadway design projects as well as on other projects that affect the freight industry. For example, when roadways or intersections are
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improved, trucking associations should be consulted since trucks have specific turning radii that need to be included in the design. • Regional freight committee: One option to further improve coordination and communication among freight and logistics stakeholders is the creation of a regional freight committee. • Further deployment of ITS in freight management: The Department of Public Safety Motor Transportation Division’s Pro-Miles permitting system should be implemented to its highest potential possible and data from this program could be utilized to identify barriers and specific problem areas and prioritize infrastructure improvements. Additionally, expanding interstate ITS technology would enable early warning of bottlenecks before truck drivers reach New Mexico’s border, allowing freight carriers to identify alternate routes to avoid costly delays. • Improved incident management/truck staging: NMDOT District 3 is in the early stages of developing an incident management plan for I-40 from approximately 12th St to Coors Blvd. Other incident management plans should be developed to improve coordination and communication when incidents occur on I-25 and I-40 to promote uninterrupted freight movement. This plan should identify truck detour routes, staging areas and truck parking areas. • Improved logistics: Improved synchronizing of different freight modes (rail and truck), technology and data is critical because it will enable the freight system to perform more effectively and efficiently • Truck rest/service Stops and Hours of Service: Based on the hours of service legislation, identify zones of route completion for truck freight where new or re-opened truck stop areas could be located • Truck climbing lanes: Designate lanes for slow-moving heavy truck freight vehicles. These lanes can help improve safety and ease congestion along congested interstate freight corridors • Truckway corridors: Identify areas of high concentration of freight businesses/warehouses • Truck routes: Identify commonly used routes that truckers use
State Rail Plan-Identified Projects within the AMPA
• Rail capacity improvements: Additional rail lines or parallel tracks would provide benefits to travelers on passenger rail by improving travel time and to rail freight through efficiency improvements. In particular, capacity improvements have the potential to increase train speeds and reduce delays due to passing trains. o Chloe Siding reconstruction mid-way between the Belen and Los Lunas Rail Runner stations. A one-mile siding is recommended to allow for more train storage and decrease delays. Trains must wait for clearance before entering the Belen yard, so this siding would provide trains a place to wait without causing delays for Rail Runner trains. • Safety improvements o NMDOT’s Bridge Design Bureau prioritized bridges and trestles for replacement. Bridge replacements ranked higher on the project prioritization matrix. o The 2008 Rail Safety Improvement Act (RSIA) requires that railroads install Positive Train Control (PTC) on all lines that carry passengers and/or certain hazardous materials by the end of December 31, 2015. PTC helps to prevent train-to-train collisions, over-speed
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derailments, incursions into established work zone limits, and movement of trains through improperly-positioned switches. BNSF PTC implementation would affect the New Mexico Rail Runner Express among other services and rail carriers. This project ranked the highest in the plan’s project prioritization matrix. • Track and signal improvements o Rehabilitate the Albuquerque wye (or, triangular junction) which will allow trains to turn around in Albuquerque o Ongoing Rail Runner capital maintenance to maintain these assets in a state of good repair. o Los Lunas siding rehabilitation to accommodate Rail Runner and BNSF trains, which would include new turns outs and signal modifications. o Alameda siding reconstruction to accommodate Rail Runner, Amtrak, and BNSF trains, which would include new turnouts and signal modifications o Bernalillo to Herzog siding construction site to provide additional passing locations for Rail Runner and Amtrak trains and reduce train delays • Station Improvements: Increase parking capacity at Rail Runner stations, including Sandoval County/US 550 in anticipation of increased ridership • Proposed New Commuter Rail Services: Develop a passenger rail service that connects Gallup and Albuquerque
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3.4 Transit In a Nutshell… From 1995 to 2012, transit ridership in the United States increased Takeaways: Transit ridership has 38 percent and passenger miles traveled increased 45 percent, increased dramatically in recent exceeding both population and vehicle-miles-traveled growth rates. years, and transit can play a critical During that same period, transit ridership in the Albuquerque area role in meeting regional mobility exploded, vastly outpacing national averages. Passenger trips needs. To encourage a greater role increased 120 percent (6.5 to 14.4 million) and passenger miles for transit, the Metropolitan traveled increased 365 percent (21.5 to 100.2 million),22 the latter Transportation Board established representing one of the highest growth rates in the country. This mode share goals along a Priority increased acceptance of transit demonstrates that transit plays, and Transit Network. Important transit will continue to play, a vital role in helping to satisfy the region’s investments have been identified, travel needs. including the Albuquerque Rapid Area residents already realize many of the benefits that transit can Transit line along Central Ave, which provide to communities, as highlighted by the American Public could begin operations in 2017. Transportation Association (APTA): Components: This section describes • Greater transportation mode choice transit services in the metro area, • Increased economic activity user characteristics, the potential • Access to employment, schools and universities, government role that transit can play in the services, health care, business and industry region, and policies to support • Mobility for persons without access to a vehicle or who are increased investments. Important not able to drive a vehicle products include maps of the priority • Reduced congestion, which results in decreased travel times transit network (page 3-93) and the and fuel consumption conceptual transit network (page 3- 108) to support the Preferred • Savings from lower gas and vehicle-related expenses Scenario. • Lower carbon and other pollutant emissions Goals and Objectives: Additional ABQ Ride (the City of Albuquerque’s Transit Department) and the Rio transit service in the AMPA supports Metro Regional Transit District (Rio Metro) are the two transit the MTP goals of Mobility by agencies delivering these same benefits to the AMPA and outlying expanding multi-modal rural communities. Although each agency was created under unique transportation options, Economic circumstances and for different purposes, the two agencies serve a Vitality by promoting development in complementary role in providing an increasingly comprehensive activity centers and key corridors, transit network. Today, both are exploring new services, such as Bus and Active Places by improving access Rapid Transit (BRT), that will position the AMPA as a region that to services and employment sites. values innovative transportation options.
22 All transit performance data reported in this section is courtesy the Federal Transit Administration’s National Transit Database, Florida DOT’s Integrated National Transit Database Analysis System, Rio Metro Regional Transit District, and City of Albuquerque.
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Figure 3-21: Transit Ridership by Service Provider, 2000-2012
16,000,000
14,000,000
12,000,000
10,000,000 Trips All Other 8,000,000
NM Rail Passenger 6,000,000 Runner Express
ABQ Ride 4,000,000
2,000,000
0 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 Fiscal Year
3.4.1 Regional Transit Partners: ABQ Ride
ABQ Ride was founded with the City of Albuquerque’s acquisition of the struggling, privately-operated Albuquerque Bus Co. and Suburban Lines in 1965. ABQ Ride currently operates the following bus services within the City of Albuquerque and portions of the City of Rio Rancho, Village of Los Ranchos de Albuquerque, and unincorporated Bernalillo County:
• Three Rapid Ride routes: Rapid Ride routes function as a premium service with stops placed approximately one mile apart; thus, they travel at a higher speed than the local routes that they commonly overlap. The 60-foot articulated Rapid Ride buses feature greater seating capacity than local buses, unique branding, and additional amenities such as Wi-Fi. They also serve more developed stops and stations than local and commuter routes. • 22 local routes: Local routes operate primarily along arterial streets at both peak and mid-day hours, and typically serve bus stops that are located one-quarter mile apart or less. In comparison to Rapid Ride routes, local routes provide a finer-grained service at the neighborhood level. • 16 commuter routes: Commuter routes connect outlying residential areas with major employment centers during AM and PM peak hours only. Unlike Rapid Ride and local routes,
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commuter routes are more likely to travel collector streets to better serve suburban residential neighborhoods, although they do not provide reliable all-day service. • Paratransit: The Americans with Disabilities Act of 1990 requires that transit agencies providing fixed routes, such as ABQ Ride’s Rapid Ride and local routes, also offer “complementary” and “comparable” paratransit service to persons with disabilities. ABQ Ride’s Sun Van paratransit provides door-to-door service in Albuquerque and portions of Bernalillo County for riders who have satisfied eligibility requirements. Per federal requirements (49 CFR 37.131), paratransit service must be provided: o At least three-quarter miles from any fixed route o During the same hours and days as the fixed route o For a fare no more than twice the comparable fare of the fixed route o Based on reservations made the previous day o With no restrictions on trip purpose or the number or trips The services listed above and also shown on Map 3-15 generally operate as follows. The 766 and 777 Rapid Ride routes serve the Central Ave corridor from Unser Blvd to Tramway Blvd, interlining between Downtown and Louisiana Blvd to provide less than 10 minute headways (time between buses). The 790 Rapid Ride connects the Northwest Transit Center on Albuquerque’s Westside to the Downtown and UNM areas. Local fixed routes are generally concentrated within the Downtown, UNM/CNM, and Journal Center activity centers, the Northeast Heights, and to a lesser extent in the North and South Valleys. Commuter routes primarily connect Westside and far Northeast Heights neighborhoods to Downtown, UNM/CNM, Kirtland Air Force Base, and the Sandia National Laboratory campus.
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Map 3-15: ABQ Ride System Map
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As indicated at the outset of this section, ABQ Ride has experienced dramatic ridership gains in recent years. In the decade from FY 2002 to FY 2012, passenger trips have grown 71 percent from 7,619,093 to 13,059,274. Figure 3-22 shows the distribution of FY 2012 ABQ Ride passenger trips by mode. Notably, over 95 percent of all passenger trips are supported by local and Rapid Ride routes, whereas commuter and paratransit services form a comparatively small share of overall ridership.
Figure 3-22: ABQ Ride Passenger Trips by Mode, FY 2012
312,047: 2% 238,223: 2%
3,114,310: 24%
Local
Rapid Ride
Commuter
Paratransit
9,394,694: 72%
The breakdown in Table 3-10 further reveals that much of ABQ Ride’s growth in the last decade is directly attributable to the addition of the 766, 790, and 777 Rapid Ride routes in 2004, 2007, and 2009, respectively. Furthermore, the top three routes, all of which predominately operate on Central Ave, comprise 41 percent of ABQ Ride’s passenger trips. Central Ave (old Route 66) functions as the primary “spine” in ABQ Ride’s system and serves many of the aforementioned employment and activity centers. In fact, 36 of 41 ABQ Ride bus routes operating in 2012 intersected or paralleled Central Ave, and most of these routes either originate from or stop at the Alvarado Transit Central located at the intersection of 1st St and Central Ave.
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Table 3-10: Top Ten ABQ Ride Routes by Passenger Trips, FY 2012
Annual Avg. Weekday Route # Route Name Passenger Trips Passenger Trips 66 Central 2,792,223 8,921 766 Red Line Rapid Ride (Central/Uptown) 1,501,759 5,374 777 Green Line Rapid Ride (Central) 1,092,410 3,923 5 Montgomery/Carlisle 885,641 3,325 11 Lomas 770,213 2,781 8 Menaul 722,583 2,545 141 San Mateo 669,686 2,133 790 Blue Line Rapid Ride (Westside/UNM) 520,141 2,294 140 San Mateo 483,165 1,931 10 North Fourth 430,689 1,541
Table 3-10 (e.g., Central, Montgomery/Carlisle, Lomas, Menaul, San Mateo) demonstrates the strong ridership along the Central Ave corridor and in the near Northeast Heights. The absence of routes in Table 3-10 operating west of the Rio Grande, with the exception of portions of the 66, 766 and 790, also indicates that other factors, to be discussed later in this section, affect the viability of transit service on Albuquerque’s Westside.
3.4.2 Regional Transit Partners: Rio Metro Regional Transit District
Another reason for the dramatic growth of transit in the AMPA is directly attributable to the development of the Rail Runner and the creation of Rio Metro. Rio Metro traces its origin to the New Mexico legislature’s passage of the Regional Transit District Act in 2003 and its authorization in 2004 allowing transit districts to levy up to a 1/2-cent gross receipts tax. Subsequently, in 2005 the Mid- Region Transit District was created and later renamed the Rio Metro Regional Transit District in 2008. That same year, Bernalillo, Sandoval and Valencia County voters passed a 1/8-cent gross receipts tax, one-half of which was solely dedicated to funding the New Mexico Rail Runner Express, which the State of New Mexico was responsible for developing in the early and mid-2000s.
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Map 3-16: Rio Metro Service Area
Rio Metro provides several transit services throughout the three-county region (see Map 3-16), some of which Rio Metro assumed from local agencies following passage of the gross receipts tax.23 As such, Rio Metro’s combination of intercity, urban, suburban and rural services, while uncommon to most transit providers, establishes a far-reaching and regional transit network that complements ABQ Ride. Rio Metro services include:
23 Reflecting the jurisdictions it serves, Rio Metro is governed by a Board of Directors comprised of 19 elected officials from Albuquerque, Belen, Bernalillo, Bernalillo County, Bosque Farms, Corrales, Los Lunas, Los Ranchos de Albuquerque, Rio Rancho, Sandoval County and Valencia County. The Board of Directors may exercise powers granted by the Regional Transit District Act, including the authority to determine routes and schedules, issue bonds, establish fares, request an increase in the gross receipts tax by the voters, and adopt a budget.
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• New Mexico Rail Runner Express: The Rail Runner is a commuter train that operates on 97 miles of track and connects several communities, including Belen, Los Lunas, Isleta Pueblo, Albuquerque, Sandia Pueblo, Town of Bernalillo, Kewa Pueblo, and Santa Fe. Approximately 11 trains run per weekday in each direction (weekend service is also available), primarily during peak commuting hours. Service between Belen and Bernalillo started in 2006, before reaching Santa Fe in 2008. While Rio Metro is responsible for operating the Rail Runner, the vehicles and track are the property of the State of New Mexico. • Nine commuter routes: Four commuter bus routes connect the Sandoval County communities of Cuba, Jemez Pueblo, Jemez Springs, San Ysidro, Zia Pueblo, Santa Ana Pueblo, Kewa Pueblo, Cochiti Pueblo, and Cochiti Lake with northern Rio Rancho, Bernalillo, and the U.S. 550 Rail Runner station. Two commuter routes in Valencia County serve Belen and Los Lunas, connecting single and multi-family neighborhoods to Rail Runner stations. One commuter route in Bernalillo County links the Central and Unser Transit Center in Albuquerque to the Route 66 Casino Hotel. Additionally, two other commuter bus routes spanning county lines replaced early morning Rail Runner trains that were discontinued from service in FY 2013. • Valencia County Dial-a-Ride: Valencia County Dial-a-Ride provides curb-to-curb transit to persons traveling within most of Valencia County. Similar to paratransit, a trip must be requested one day in advance; however, there are no other qualifying requirements to use the service. • Rio Rancho Dial-a-Ride: Rio Rancho Dial-a-Ride provides door-to-door service to any Rio Rancho resident age 62 or older and for persons with disabilities age 18 or older. Registration is required to ensure proof of residence within the City of Rio Rancho and the satisfaction of basic eligibility requirements. • Community Transportation: The Community Transportation program (previously Job Access and Reverse Commute) provides taxi rides and/or bus passes to Temporary Assistance for Needy Families (TANF), low-income, senior and other individuals with disabilities living in Bernalillo County who have limited transportation options to access work or job training opportunities. • Intergovernmental services: Rio Metro funds routes operated by ABQ Ride, including the 790 Rapid Ride. Rio Metro also provides funding for the New Mexico Department of Transportation’s Route 500, a park-and-ride service that connects Albuquerque and the NM 599 Rail Runner Station in Santa Fe with Los Alamos.
In total, Rio Metro provided 1,365,106 passenger trips in FY 2012, excluding ABQ Ride trips attributable to Rio Metro funding. As shown in Figure 3-23, the Rail Runner accounted for 87 percent of those trips, followed by commuter buses (6 percent), Valencia County Dial-a-Ride (5 percent), Rio Rancho Dial-a- Ride (1 percent), and Community Transportation (1 percent).
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Figure 3-23: Rio Metro Passenger Trips by Mode, FY 2012
68,109: 5% 11,245: 1% 19,415: 1%
74,683: 6%
Rail Runner
Commuter Bus
Rio Rancho Dial-a-Ride
Valencia County Dial-a-Ride
Community Transportation
1,191,654: 87%
When compared to ABQ Ride, Rio Metro carried approximately one-tenth the riders in FY 2012; however, passenger trips are not the sole measure of transit use. In that same year, ABQ Ride passengers logged 48,244,579 passenger miles traveled while Rio Metro riders logged 52,000,595 passenger miles traveled, most of which were generated by the Rail Runner.24,25
24 The National Transit Database defines passenger miles traveled as: “The cumulative sum of the distances ridden by each passenger.” For example, a bus which takes 10 passengers 20 miles accumulates 200 passenger miles traveled. 25 According to APTA, in 2012 the Albuquerque urbanized area ranked 39th nationwide in passenger miles traveled, while ranking 56th in population.
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Figure 3-24: Passenger Miles Traveled, ABQ Ride vs. Rail Runner, FY 2009-FY 2012
120,000,000
100,000,000
80,000,000
60,000,000 Rail Runner ABQ Ride 40,000,000 Passenger Miles Traveled Miles Passenger
20,000,000
- 2009 2010 2011 2012 Fiscal Year
The reason that Rio Metro surpasses ABQ Ride in passenger miles traveled is directly attributable to trip length—Rio Metro moves fewer people farther. In FY 2012, the average passenger trip length for ABQ Ride was 3.7 miles; the average passenger trip length for Rio Metro was 40.1 miles. This difference reflects their respective operating environments. ABQ Ride serves the urban and suburban context of Albuquerque where origins and destinations are relatively close to one another. Rio Metro, however, tends to provide longer, regional connections that link geographically separate communities and transit systems. Map 3-17 highlights this breadth of coverage and connectivity between the Rail Runner and other transit systems. ABQ Ride, the North Central Transit District, NMDOT Park-and-Ride Shuttles, Santa Fe Trails (City of Santa Fe), Socorro Transit and several casinos all provide connections to Rail Runner stations.26
26 As a specific example of the Rail Runner’s capacity to link distinct transit providers, it is possible for a Socorro resident visiting a relative in Taos to take Socorro Transit’s 5:35 AM Rail Runner Shuttle to the Belen Rail Runner Station, board the northbound #506 Rail Runner train at 6:35 AM, transfer to the North Central Transit District’s (NCTD) Santa Fe to Espanola bus at 9:00 AM, and transfer one final time to the NCTD’s Espanola to Taos bus, arriving in Taos at 11:00 AM. While this hypothetical trip is likely uncommon, it demonstrates the importance of viewing neighboring transit agencies as components of one, larger, interconnected system.
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Map 3-17: New Mexico Rail Runner Express System Map
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3.4.3 Transit User Characteristics
In 2012, MRMPO conducted a survey of both ABQ Ride and RMRTD riders in conjunction with an update of its transportation model. The subsequent findings reveal that the AMPA’s transit providers serve a diverse population and do not target or solely market to a prototypical rider. Thus, the successful provision of transit is, in part, conditioned upon the ability to satisfy various groups’ needs.
With specific regard to ABQ Ride, Figure 3-25 depicts both the system’s popularity with students (35 percent of all riders) and also a high percentage of unemployed non-student riders (25 percent of all riders). Furthermore, 74 percent of riders did not have access to a vehicle on the day of their trip.
Figure 3-25: Student and Employment Status, ABQ Ride
25%
40%
Non-Student Employed
Student Employed
Student Unemployed
Non-Student Unemployed
17%
18%
Figure 3-26 also shows the relative disparity in annual household income between ABQ Ride passengers and the annual household income in Bernalillo County as reported by the U.S. Census Bureau’s American Community Survey (2008-2012). Nearly 50 percent of respondents reported annual household incomes less than $15,000. Altogether, these findings underscore ABQ Ride’s vital role in meeting the needs of residents facing socioeconomic hardship that might not otherwise have reliable transportation to work, school, and other services.
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Figure 3-26: Annual Household Income, ABQ Ride vs. Bernalillo County
35%
30%
25%
ABQ Ride 20%
15% Bernalillo County
10%
Percentage of Population of Percentage 5%
0%
Annual Household Income
Figures 3-27 and 3-28 highlight ABQ Ride’s increasing success in attracting an altogether different market of riders who are generally more affluent and have the option to use transit or drive an automobile, especially during their commutes to and from work and school. In a simple comparison of true vehicle availability between riders on the 66, 766/777 and 790 routes, the 790 Rapid Ride, which connects northwest Albuquerque to UNM, far outpaced its peers. Approximately 65 percent of 790 Rapid Ride passengers had access to an automobile, yet opted to use public transportation—suggesting that a park-and-ride-based service, operating with limited stops and relatively fast, frequent service to popular destinations, has the potential to attract a distinct market of riders living on Albuquerque’s Westside. The limited and relatively expensive parking at UNM also plays a role in attracting would-be drivers to the 790.
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Figure 3-27: True Vehicle Availability, ABQ Ride Routes 66, 766/777, 790
70%
60%
50%
40%
66 30% 766/777 790 20%
Percentage of Population of Percentage 10%
0% No Vehicle Owned Vehicle Owned, Vehicle Owned, Available Unavailable Vehicle Availability
Figure 3-28: Annual Household Income, ABQ Ride Routes 66, 766/777, 790
40%
35%
30%
25%
20%
15% 66 766/777 10% Percentage of Population of Percentage 790 5%
0%
Annual Household Income
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The 2012 MRMPO transit survey reveals that the Rail Runner, like the 790 Rapid Ride, generally serves a less transit-dependent and higher income population than ABQ Ride. Twenty-six percent of respondents were students, and 22 percent of all respondents were not students and unemployed. Also, as Figures 3- 29 and 3-30 indicate, Rail Runner riders have vastly higher rates of vehicle availability and annual household income than most ABQ Ride passengers. These findings, unsurprisingly, reflect the Rail Runner’s primary function as an intercity rail service that operates during peak hours for the benefit of commuters.
Figure 3-29: True Vehicle Availability, Rail Runner vs. ABQ Ride
90%
80%
70%
60%
50%
Local 40% Rapid Ride 30% Commuter
Percentage of Population of Percentage Rail Runner 20%
10%
0% No Vehicle Owned Vehicle Owned, Vehicle Owned, Unavailable Available
Vehicle Availability
In addition to these local trends, national demographic trends also have the potential to influence who uses ABQ Ride and Rio Metro services in the future. Millennials, born between approximately 1982 and 2000—the largest and most diverse generation to date—have experienced the advent of smartphones, social media, and the Great Recession. Recent surveys conducted by APTA and Transportation for America have found that Millennials prefer and would more strongly consider relocating to communities with a variety of transportation modes. Furthermore, Millennials value digital connectivity while in transit, real-time information that reduces waiting and enhances trip planning, and Wi-Fi or 3G/4G services. This suggests that value-added digital comforts, such as UNM and ABQ Ride’s “Where’s My Bus?” web application and ABQ Ride’s smartphone app, will be valuable in attracting this burgeoning market.
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Figure 3-30: Annual Household Income, ABQ Ride Services vs. Rail Runner
40%
35%
30%
25%
20% Local 15% Rapid Ride Commuter 10% Percentage of Population of Percentage Rail Runner 5%
0%
Annual Household Income
At the other end of the generational spectrum, aging Baby Boomers (born between 1946 and 1964) are likely to place additional demand on public transit. This continues a trend of increasing senior use of transit, notably highlighted by Transportation for America. In 2009, seniors took 328 million more trips via transit than they did in 2001. Despite this uptick, Baby Boomers grew up in the age of the automobile and are largely accustomed to this mode. After retirement, they tend to remain in their neighborhoods rather than relocating to more transit-friendly locations. As they eventually lose their ability to drive, however, many will be left dependent on friends and family with few transportation options.
In Transportation for America’s ranking of metropolitan areas, Albuquerque ranked 14th best among large metro areas with only 42 percent of seniors having poor access to transit by 2015. In particular, the rural areas of Bernalillo, Sandoval and Valencia Counties fared worst, while the ABQ Ride service area generally in the heart of Bernalillo County fared better. Comparatively, 70 percent of Las Cruces seniors and 60 percent of Santa Fe seniors have poor access to transit. These findings are troubling, especially as the U.S. Census Bureau estimates that the senior population will grow by at least 76 percent between 2010 and 2030.
It remains unclear how ABQ Ride and Rio Metro may be affected by aging Baby Boomers. For example, it is plausible that paratransit demand will increase. However, paratransit is dramatically more expensive when compared to other transit services; in 2012 ABQ Ride’s operating expense per passenger trip was
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$2.74 for bus and $31.26 for paratransit. Furthermore, Rio Metro could be more susceptible to aging- related demand, as its Rio Rancho and Valencia County Dial-a-Ride services are offered to seniors without respect to disability and neither service is constrained by proximity to a fixed route per federal paratransit regulations. ABQ Ride, however, provides paratransit based solely on ADA eligibility. It does not offer service to residents once they reach a certain age, regardless of disability.
3.4.4 Increasing the Role of Transit in the Region
In response to the high levels of congestion projected in the 2035 MTP and limited funding for new major roadway investments, the Metropolitan Transportation Board (MTB) adopted mode share goals in 2010 through Resolution 10-16 MTB that prioritized transit’s role in offsetting congestion at river crossings. By 2035, the MTB desired that transit account for 20 percent of all river crossing trips. The resolution also targeted funds available through the Transportation Improvement Program (TIP) to achieve this goal. Specifically, the resolution required that “25% of sub-allocated federal funds beginning in 2016 be programmed for capital improvements that implement new or improved Bus Rapid Transit or other premium transit modes as identified in the 2035 MTP.”
As a proactive step during the drafting of the 2040 MTP, the MTB realigned the transit mode share goals to better support the principles of the Preferred Scenario, which in turn support planned BRT projects and the corridors that can support the greatest transit ridership. For example, because the previous goals focused solely on increasing mode share at river crossings in the AMPA, a project such as the UNM/CNM BRT along University Blvd (see page 3-98), which does not cross the river, was ineligible to receive funding set aside to achieve those goals despite its high-ridership potential and value to the region.
The MTB Resolution 15-01, passed January 2015, similarly includes a 20 percent transit mode share goal by 2040 and requires the allocation of 25 percent of STP-U and CMAQ27 funds for “transit projects, or portions of projects, with substantial dedicated transit infrastructure,” but now more meaningfully focuses those funds on a priority transit network shown on Map 3-18. This priority network includes planned BRT projects and many of the high-capacity Rapid Ride and primary routes shown on the conceptual transit network.
27 STP-U and CMAQ are federal funding categories programmed through the Transportation Improvement Program. For more on the TIP, see chapter 5.1.
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Map 3-18: Priority Transit Network
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Table 3-11: Mode Share for Selected Corridors28
Average Corridor Mode Peak Mode Share Peak Link Location Share Bridge Blvd 1.2% 1.9% Isleta-8th Central Ave 13.1% 20.2% / 29.6% Washington-San Mateo / 6th-8th Coors Blvd 2.4% 4.6% Paseo del Norte Interchange Jefferson St 0.8% 1.4% Alameda-Paseo del Norte Lomas Blvd 6.9% 12.8% 2nd-3rd Louisiana Blvd 4.0% 8.9% Uptwon-America's Parkway Montgomery Blvd 2.0% 3.2% Carlisle-Jefferson Montaño Rd 1.1% 1.5% Edith-Renaissance San Mateo Blvd 2.7% 5.5% Kathryn-Zuni Interstate 25 / Rail Runner 2.4% 3-4% / 7.5% Belen-Rio Bravo / North of US 550
An even more fundamental reason for this change is a function of geometry. The previous mode share goals supported a series of parallel corridors that do not intersect (i.e., river crossings). However, the new mode share goal supports a potential frequent network that more closely aligns with the Preferred Scenario and facilitates connectivity between routes.
Figure 3-31: Previous and Revised Mode Share Goals, Network Comparison
28 Some of the corridors included in the priority network are not listed in the table because service on those corridors does not currently exist.
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The new mode share goal marks a subtle but fundamental shift from the previous approach. Instead of targeting east-west river crossings indiscriminately, the new mode share goal focuses on a specific network that includes key river crossings where the application of transit is most practical, congested corridors, and major activity and employment centers that attract riders. Stated another way, it is not enough for a rider to get across the river—which is a significant barrier that cannot be ignored—but also to their desired destination. The AMPA’s future transit network must accomplish both.
In practice, the Albuquerque Rapid Transit project along Central Ave will likely be the first beneficiary of this revised policy—bringing to bear both local funds and federal funds derived from the transit mode share set aside to compete for and complement Federal Transit Administration Small Starts funds. In later years, the UNM/CNM BRT could likewise be the next logical recipient for set-aside funds based on the relative priority that Rio Metro’s Board assigned to both projects. Nevertheless, Resolution 15-01 MTB is structured so that the priority network may be revised during each MTP cycle (every four years) to reflect the AMPA’s evolving transit needs.
These additional TIP funds counterintuitively highlight the greatest challenge to expanding transit service in the AMPA: operational funding. The federal funds that R-10-16 MTB targeted, specifically STP- U and CMAQ, are primarily available for capital improvements, such as the acquisition of land for and the design and construction of new park-and-ride lots and Bus Rapid Transit systems. Although these funds are critical for matching other local, state and federal sources when implementing new services, they are not authorized to sustain long-term operations.29
Labor, fuel, maintenance, vehicle replacement and administration are the primary determinants of a transit system’s on-going expenses, and, over the long term, can outweigh the capital investments required to introduce new services. Also, investments in long-distance and/or low-ridership routes generally result in higher operating costs. Presently, both ABQ Ride and Rio Metro are utilizing all available revenue sources to operate existing services. Any new service (i.e., a new route or increasing the frequency of an existing route) would require either the elimination or restructuring of existing services, or an additional, sustainable revenue source. The efficiency of that service would likewise affect the efficacy of any new revenue source.
Land Development Patterns and the Viability of Transit
Through the adoption of the mode share goals, the MTB acknowledged that the AMPA will not be able to build its way out of congestion. There are a limited number of bridges spanning the Rio Grande to facilitate river-crossing trips, and congestion at these locations becomes acute during peak hours. Under the Trend Scenario, the regional average volume-to-capacity ratio for all river crossings slightly exceeds 1.0 (the average V/C ratio in the Preferred Scenario is 0.99).
While the imbalance in housing and jobs is projected to improve slightly by 2040, growth and land development patterns may exacerbate congestion at river crossings. The Westside, in particular, remains characterized by low-density residential development served by a hierarchy of streets that tend
29 CMAQ funds may be used for startup operational costs, but must be replaced by other funds in later years.
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to concentrate traffic on a few arterials, rather than a grid network that more equally distributes traffic. By 2040 many Westside arterial streets are anticipated to exceed capacity during peak hours, whereas the arterial grid network east of the river remains largely within acceptable limits.
Ultimately, this pattern of development discourages cost-effective, local transit service in much of the region. As the footprint of the Westside continues to grow, it expands ABQ Ride and Rio Metro’s service areas, and has the potential to dilute the level of service to existing areas if additional revenue is not generated to support this growing population and geographic area. Additionally, low-density residential development with poor pedestrian connectivity limits the number of individuals living within a walkable distance of a transit stop (desirably ¼-mile). Thus, a bus must travel farther in this circuitous setting to reach the same number of riders that it might reach in higher-density neighborhoods aligned along a more linear corridor (A longer route also requires more buses to maintain the same frequency as a shorter route, which exacerbates operating costs). Furthermore, a bus operating in ever-increasing congestion will experience declining average speeds. As average speeds decrease, and a bus takes longer and longer to complete its route, more buses will be required to preserve frequency. If additional buses cannot be supplied to offset increasing travel time, frequency will decrease and ridership may decline.
Implicit in these observations is a common theme in this MTP: land use patterns, densities and road connectivity are some of the strongest determinants of single-occupancy vehicle congestion and the viability and success of transit. This is evidenced by the fact that ABQ Ride’s most successful local and Rapid Ride routes, located along the Central Ave and I-25 corridors and within the near Northeast Heights, serve major activity centers (e.g., Downtown, Uptown, UNM/CNM, Journal Center) with relatively high employment and population densities. This synergy is bolstered by the presence of an urban street grid and many neighborhoods that are home to more transit-reliant populations.
Conversely, it is generally inefficient to extend local bus service to low-density residential areas such as the Westside and far Northeast Heights. Nevertheless, such an assertion raises a common dilemma: should transit providers locate services (i.e., spend money) to maximize ridership—often times to the detriment of less transit-efficient locations—or should they strive for consistent geographic coverage throughout their entire service area, regardless of performance?30 In the case of serving Westside neighborhoods, ABQ Ride has tried to balance ridership and coverage by offering some local routes, limited commuter routes and the popular 790 Rapid Ride to connect northwest Albuquerque and Rio Rancho homes to Eastside jobs. In effect, this approach targets the less transit-dependent demographic that has the option to drive, while not ignoring the inherent inefficiencies of the Westside’s development patterns.
Map 3-19, which depicts Albuquerque’s average weekday transit ridership in 2012 (excluding commuter routes), demonstrates this reality. The Rail Runner, Central Ave, north I-25 corridor and near Northeast Heights generally reflect the highest ridership. On the Westside only Coors Blvd carries significant ridership.
30 A more in-depth analysis of this issue is presented in Jarrett Walker’s Human Transit, published in 2012 by Island Press.
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Map 3-19: Average Weekday Transit Users, 2012
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Rio Metro Visioning Process
With continued emphasis on transit’s importance to the region’s transportation network, there is a clear need for coordinated, long-range transit planning that encompasses both Rio Metro and ABQ Ride’s services. As noted in Chapter 4.1, transit excels in the Preferred Scenario in comparison to the Trend Scenario. However, in order to realize this success, both transit agencies, and surrounding local governments must more explicitly consider the impacts to and the integration of transit in their land use and transportation plans. In addition to this MTP, there are several examples of how this is taking shape.
The Rio Metro Board of Directors embarked on a visioning process in 2014 to consider the following issues, some of which have been outlined previously in this section:
• Transit’s role in economic development and regional competitiveness • Costs and benefits associated with various transit modes and projects • Implication of land use decisions on the cost efficiency of transit • Influence of transit on surrounding land uses • Funding options for implementing new transit services • Policy and investment decisions necessary to ensure an effective regional transit system
Ultimately, the visioning process will better define Rio Metro’s relationship to ABQ Ride (and vice versa). In doing so, both agencies could consider several applicable examples of western U.S. transit agencies that have positioned themselves and/or integrated with partner agencies to provide a more seamless experience for their riders.
At one end of the spectrum, the Phoenix area’s Regional Public Transportation Authority adopted the Valley Metro brand, under which all of the area’s distinct, municipal transit agencies operate. Today, trip planning and ticketing spanning multiple providers and modes are now consolidated on Valley Metro’s website. The Tucson area’s Regional Transportation Authority (RTA) also reflects a moderate level of coordination. Essentially, the RTA funds, designs, and constructs transit projects that other agencies (e.g., City of Tucson’s Sun Tran) operate and also funds increases in the frequency and hours of operation to existing services. At the other extreme (which would assume full consolidation of Rio Metro and ABQ Ride), Denver’s Regional Transit District and the Utah Transit Authority are the primary transit providers of numerous modes in the Denver and Salt Lake City regions. Alternatively, Sound Transit in Washington State serves as the main funder and operator of high-capacity, express, and commuter connections throughout the Puget Sound Region, largely deferring the funding of intra-city routes to municipalities.
Transit in Land Use Plans
More so than any proposed operating structure, the future success of transit in the AMPA is largely dependent upon land use policies that encourage transit-supportive development. To that effect, transit’s value is gaining traction in local governments’ plans and projects. Most broadly, the City of Albuquerque’s August 2013 amendment to the Albuquerque/Bernalillo County Comprehensive Plan continues to emphasize transportation corridors “that may reflect current transit services or projected
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improvements, including future Bus Rapid Transit routes,” and also includes an Activity Centers and Transportation Corridors Map that identifies major and enhanced transit corridors along which increased housing and employment are desired.31
At the corridor scale, Bernalillo County’s Bridge Boulevard Corridor Redevelopment Plan seeks to proactively couple increases in land use densities and employment opportunities along Bridge Blvd with key pedestrian and transit improvements, such as queue jump lanes, signal prioritization, re-evaluation of route alignments and stops, and frequency increases. Likewise, the City of Albuquerque’s Coors Corridor Plan recommends Bus Rapid Transit service traveling in new, dedicated lanes within the Coors Blvd corridor, rather than adding vehicle lanes as a means of mitigating congestion. This would essentially build upon the 790 Rapid Ride’s success. Although the Coors Corridor Plan is not scheduled for final approval at the time of this writing, the emphasis on transit on a major vehicle-centric arterial such as Coors Blvd is noteworthy.
3.4.5 Bus Rapid Transit
The changing priorities in transportation investments in the metropolitan area are reflected in the surge in interest in new transit services. Agencies are increasingly seeking alternative solutions to building new general purpose lanes and are coming to view transit service as a form of capacity expansion and a means of stimulating additional investment along key corridors. In the last several years, three major BRT studies have taken place, while the Coors Corridor Plan identified major transit improvements as a more viable solution to long-term congestion than widening the roadway. One particular project, Albuquerque Rapid Transit along Central Ave, is under development and could begin operations in 2017.
In contrast to the local bus routes and in many ways different from the Rapid Ride system, BRT typically incorporates several rail-like features (although at a substantially lower cost) that improve system speed, reduce delay and also promote comfort and security:
• Dedicated busways (travel lanes separate from and excluding passenger vehicles) • Traffic signal priority and other forms of preemption • Covered stations featuring level boarding (reduces delay of wheelchair and stroller boarding), lighting, real-time information and other amenities that improve security and comfort • Off-vehicle fare collection • Unique branding • High-capacity vehicles that provide multiple points of entry and exit
31 The City of Albuquerque and Bernalillo County are currently in the process of updating their Comprehensive Plan, and the enhanced transit corridors designations may be subject to change with the approval of the MTP and the update to the Comprehensive Plan.
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Figure 3-32: Characteristics of BRT32
Globally, BRT has experienced dramatic growth, especially in Central and South America (home to the first BRT services), China, and to a lesser degree in the United States. As Figure 3-33 shows, the distance of BRT corridors worldwide has grown from about 450 miles to about 1,603 miles between 2004 and 2014 as countries seek to cost-effectively meet the transportation needs of their citizens.33
Figure 3-33: Growth in BRT Worldwide
In the United States, federal commitment to BRT continues through the most recent transportation legislation, MAP-21. When compared to its predecessor, SAFETEA-LU, MAP-21 provides greater
32 Institute for Transportation and Development Policy. (2014). What is BRT? Retrieved from https://www.itdp.org/ library/standards-and-guides/the-bus-rapid-transit-standard/what-is-brt/ 33 Institute for Transportation and Development Policy. (2014). A global rise in bus rapid transit: 2004-2014. Retrieved from https://www.itdp.org/wp-content/uploads/2014/11/BRT-Infographic.jpg. Distances were converted to miles from kilometers by the authors of the MTP.
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flexibility for BRT projects, notably by reducing the requirement for operation in a separate busway from 100 percent to 50 percent for the New Starts program. While MAP-21 does not contain a similar provision for the Small Starts program (i.e., no busway requirement), it does require that BRT projects emulate rail and also have short headways in both directions throughout the entire week.
Albuquerque Rapid Transit
Recently branded as Albuquerque Rapid Transit, or ART, the BRT line is proposed to run along Central Ave. The initial phase would run from Unser Blvd to Tramway Blvd, supplanting the 766/777 Rapid Ride routes. At its heart, the ART is not merely about capitalizing on ABQ Ride’s highest ridership corridor, but also creating synergies with economic development efforts such as Innovate ABQ and redevelopment projects along Central Ave. There are precedents elsewhere that support this expectation. According to the Institute for Transportation and Development Policy, Cleveland, Ohio, for example, realized $114.54 of investment for every $1 dollar it spent on BRT, especially when coupled with widespread support among public, private and non-profit entities for development along the “HealthLine.”34
Map 3-20: Albuquerque Rapid Transit Alignment35
ABQ Ride anticipates rolling out this service as early as 2017 if additional federal funding, such as a Small Starts grant, becomes available to supplement local funds. While more refined capital construction cost estimates have not been finalized, an initial assessment from the Central Avenue Corridor BRT Feasibility Study lists the approximate cost of the minimum operable segment at $100 million. Additionally,
34 Additionally, APTA reports that every $10 million invested in transit capital and operations results in $30 million and $32 million in increased business sales, respectively. 35 Map and subsequent cross sections courtesy City of Albuquerque.
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because ART is replacing the 766 and 777 Rapid Ride routes, ABQ Ride anticipates that reducing the operational costs of the latter can help offset the former.
Figure 3-34: Conceptual ART Cross Sections
UNM/CNM/Sunport Transit Study
Through Resolution R-14-08, Rio Metro’s Board of Directors ranked the ART as priority 1A; the UNM/CNM BRT ranked 1B. As described in the UNM/CNM/Sunport Transit Study Alternative Alignments Identification and Assessment, and as shown on Map 3-21, the UNM/CNM BRT will operate primarily on University Blvd and Yale Blvd from Menaul Blvd to the Sunport. Not only will it intersect the ART and improve mobility between the University of New Mexico, Central New Mexico Community College and the Sunport, the UNM/CNM BRT will also help alleviate congestion and parking demand by connecting parking lots and other transit routes to housing, employment centers and other popular destinations. The UNM/CNM BRT is anticipated to serve more than 17,000 riders per day, and weekday headways will
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vary between five minutes and 15 minutes depending upon the location within the 6.5-mile corridor. Capital costs are estimated to be between $62 and $65 million, and a new source of operational funding will be required.
Paseo del Norte High Capacity Transit Study
The Paseo del Norte High Capacity Transit Study Alternatives Analysis Report highlights the third BRT project under consideration. The Paseo del Norte project arose from the Metropolitan Transportation Board’s aforementioned mode share goals for river crossings and seeks to connect housing in northwest Albuquerque and southern Rio Rancho with employment east of the Rio Grande. Notably, neither the Paseo del Norte nor UNM/CNM projects assumed that BRT would be the preferred mode from the onset. Rather, the selection of BRT in both cases was based on a variety of needs and evaluation criteria. The locally preferred alternative originates in Rio Rancho at the intersection of Southern and Unser Blvds, travels south on Unser Blvd to Paseo del Norte, and continues east on Paseo del Norte until reaching Jefferson St. The route then turns south on Jefferson St before continuing to UNM and CNM via I-25 frontage roads and University Blvd (i.e., interlining with the UNM/CNM BRT). Headways are estimated to range between 10 and 15 minutes along the 24-mile corridor but could be reduced as ridership grows. Like the UNM/CNM BRT, the Paseo del Norte BRT will require new operational funding. Capital costs are estimated at $105 million.
In the 2040 MTP, only the ART on Central Ave is expected to be fully constructed and operational under existing financial conditions. All three BRT projects are proposed for implementation by 2025 in their respective studies; however, additional revenue sources need to be identified to implement these services. Nevertheless, premium transit service on these and other priority corridors are important for addressing regional mobility needs and realizing the benefits of the Preferred Scenario.
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Map 3-21: UNM/CNM BRT Locally Map 3-22: Paseo del Norte High Capacity Transit Preferred Alternative Study Locally Preferred Alternative
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3.4.6 Transit Funding Challenges
As plans and projects continue to recommend and investigate future transit services, new sources of operating funds would be required. However, both ABQ Ride and Rio Metro’s operating budgets are at capacity, with very little room to provide additional service in response to demographic pressures. Rio Metro’s operating budget for FY 2015 (excluding reserves) is $42.3 million, of which $26.9 million is allocated to the Rail Runner and $15.4 million is allocated to bus operations. An additional $8.1 million is committed to capital improvements that include maintenance of cars, locomotives and track, and bus purchases. The primary source of local funding is a 1/8-cent gross receipts tax, which is currently estimated to generate $24 million per year. Federal funds comprise the largest share of the remaining funds.
Interestingly, ABQ Ride and Rio Metro’s budgets are very similar—consistent with their near-identical provision of passenger miles traveled. ABQ Ride’s FY 2015 operating budget of $46.8 million depends heavily upon several local sources supplemented by federal funds, including $19.4 million from the general fund, $13.1 million from the transportation infrastructure tax, and $7.1million from intergovernmental sources including Rio Metro.
From an efficiency perspective, the cost of operating ABQ Ride buses per vehicle revenue hour has risen from $77.13 in FY 2002 to $89.61 in FY 2012.36 However, likely because of service expansions that have targeted ridership, the operating expense per passenger mile has declined from $1.03 to $0.77 during that same period. By comparison, the Rail Runner’s operating expense per vehicle revenue hour has declined from $673.65 in FY 2009 (first year of National Transit Database reporting) to $649.77 in FY 2012. However, operating expense per passenger mile has increased from $0.44 to $0.47 during that same period as ridership stabilized after the introduction of this new service.
3.4.7 Conceptual Transit Network
In support of the 2040 MTP scenario planning efforts, and as an attempt to understand how the region’s transit network could plausibly grow, a conceptual transit network was developed that incorporates new projects and enhancements to existing services—and ties them to a proposed revenue source. If community leaders and voters desired to make a greater investment in transit, Rio Metro’s remaining 3/8-cent gross receipts tax capacity is likely the most appropriate funding source.37 Based on current receipts, such an increase would generate approximately $63 million annually. For the purposes of this analysis, Rio Metro’s services, excluding the Rail Runner, and ABQ Ride’s Sun Van paratransit service received additional funding ($8 million) proportionate to their share of the combined 2012 operating budgets of ABQ Ride and Rio Metro. This would allow operations in Valencia and northern Sandoval
36 Fiscal year operating expenses reflect dollars for that year, meaning that some of the increase from 2002 to 2012 could be due to inflation. 37 According to APTA, Seventy-nine percent of all 2012 transit-related ballot initiatives in the U.S. were approved by voters.
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Counties to accommodate anticipated growth and assumes that paratransit demand will increase as the population both ages and ABQ Ride’s fixed-route service area expands under the Preferred Scenario.
Under the conceptual transit network, the Rail Runner received less than its proportionate share ($13 million) of revenue for several reasons. First, no major extensions of the Rail Runner or similar rail projects are proposed in the AMPA. Instead, efforts to expand operations would focus on increasing frequency and capacity by adding cars to existing trains, express trains during peak commuting hours, and mid-day service. Also, much of the funds would support the construction of capital projects that emphasize efficiency, such as siding and centralized traffic control systems that would both reduce delay and allow trains to operate at higher speeds. Both of these strategies have the potential to bolster ridership.
The remaining balance of new revenue ($42 million) was provided for BRT and bus services generally aligning with ABQ Ride’s existing service area. The rationale for this distribution is not so much based on this area’s disproportionate share of the population (and, consequently, tax revenue generation); rather, the Albuquerque area has the proven potential to provide the greatest return in terms of both ridership and service efficiency.38 This allocation essentially values ridership without sacrificing coverage throughout the region. Similarly to the Rail Runner, funds were also allocated to defray the startup capital costs of BRT projects and to match approximately $10 million per year in federal funds from sources such as the TIP (via the mode share goals) and the Small Starts program.
In addition to the distributions noted above, Conceptual Network vs. Priority Network approximately one-fifth of the funds committed to each service type were withheld to fund vehicle The conceptual transit network shown on replacement and maintenance of capital assets; Map 3-23 is one possible outcome of how the thus, any new services funded by the gross receipts AMPA’s transit network could feasibly expand tax increase would be sustained by that same to support the Preferred Scenario. The source. In reality, additional Federal Transit priority transit network shown on Map 3-18 Administration formula funds would likely defray depicts a more focused network of transit some of these costs. corridors with high ridership potential that are eligible to receive funding set aside by Based on those cost assumptions, MRMPO and Resolution 15-01 MTB, which established a 20 RMRTD staff created a conceptual transit network to percent transit mode share goal for the show how BRT and bus services could be expanded priority network by 2040. within the greater Albuquerque area. At the onset, a transit network nearly identical to the ABQ Ride network depicted on Map 3-15 was modeled to determine a baseline of vehicle revenue hours.39 In order to calculate the vehicle revenue hours generated for each of the 23 routes modeled, the route length, and an assumed average speed were
38 For example, ABQ Ride’s most efficient route, the 66 Central Ave, averaged 63.9 boardings per hour vehicle revenue hour in FY 2012. By comparison, the Rail Runner averaged 31.9 boardings per vehicle revenue hour, and Rio Metro’s commuter buses averaged 4.75 boardings per vehicle revenue hour (see footnotes 6 and 12). 39 Commuter routes were excluded to simplify the model, as they account for only two percent of ABQ Ride’s ridership. However, the continuation and expansion of commuter routes may be desirable in future years.
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used to determine the number of buses required to maintain a given frequency. The number of buses required were then multiplied by the span (total hours of operation along a route) to generate the total vehicle revenue hours required for a particular route. The same process was also completed for the 2040 conceptual transit network; however, the amount of additional vehicle revenue hours allowed by the 2040 network was constrained by known service costs.
The 2040 conceptual transit network, as shown on Map 3-23, comprises an approximately 86 percent increase in vehicle revenue hours over the 2012 transit network through the provision of the following services:
• Four BRT routes operating at eight to 15 minute headways, with the Paseo del Norte BRT and UNM/CNM BRT interlining south of Menaul Boulevard • Three new Rapid Ride routes that interline at 15 minute headways with the most popular local routes along Montgomery, Lomas and San Mateo Boulevards • Increasing the frequency of the eight “primary” local routes (most traversing the Northeast Heights) to 15 minute headways40 • Increasing the frequency of 12 existing “secondary” and “tertiary” routes to between 25 and 30 minute headways, and creating four new secondary and tertiary routes that primarily serve locations outside of ABQ Ride’s existing service area • Extending the span to between 17 and 19 hours for BRT, Rapid Ride and primary routes, and 15 hours for secondary routes
The conceptual transit network should be viewed as a rough approximation of what is possible. Were this analysis to come to fruition, a far more detailed planning and modeling exercise incorporating public input would be necessary. For example, the simple method employed to develop the 2012 baseline and 2040 future transit networks incorporated many assumptions or limitations that a more robust effort would refine.
40 A 15-minute headway is often considered the minimum headway necessary to create the perception of a frequent network, one in which a rider can pay less regard to the schedule.
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Map 3-23: Conceptual Transit Network for the Preferred Scenario
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Map 3-24: Transit Network Frequency Comparison, 2012 vs. 2040
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Notes on the Conceptual Transit Network
• All routes were modeled at peak frequency along their entire lengths. In reality, many routes operate at a lower frequency at midday, and others only enter certain areas, such as Kirtland Air Force Base and Sandia National Laboratory, during limited times. As such, the 2012 network overestimates the number of vehicle revenue hours ABQ Ride actually provided in 2012 by 14 percent. However, not all routes in 2040 would likewise be expected to operate at peak frequency (i.e., the 2040 conceptual transit network overestimates vehicle revenue hours as well). • The number of buses required was likely underestimated. A route that mathematically requires 5.3 buses in the model to maintain a 15-minute headway would actually require six buses to achieve that headway (it’s impossible to operate one-third of a bus). • It was not determined how the 2040 network might affect Sun Van paratransit demand. For example, because paratransit service is required within three-quarter miles of a fixed route, an increase in frequency to an existing bus route does not necessarily expand the federally- mandated paratransit service area. However, extending an existing fixed route or adding a new fixed route to a previously unserved area would expand paratransit service. • A greater portion of the new gross receipts tax revenue could be allocated to pay for the immediate construction of BRT and Rail Runner infrastructure and other capital needs so as to avoid additional interest through a bond or similar debt-financing mechanism. This pay-as-you- go approach could delay service enhancements to existing routes, but might otherwise reduce the 2040 conceptual transit network’s long-term capital costs. • Capital and infrastructure costs and gross receipts tax revenues were inflated at equal rates. However, for example, changes in construction material costs, a new labor agreement with transit operators, or gross receipts tax revenue fluctuations could all affect implementation. • New revenues would not be used to offset existing funding. For example, Rio Metro gross receipts tax revenue would not replace existing City of Albuquerque general fund contributions for existing services.
3.4.8 Strategies and Recommendations
Transit passenger trips in the AMPA have doubled to over 14,000,000 between 2000 and 2012. This is due to several factors, including ABQ Ride’s introduction of Rapid Ride service and the advent of the Rail Runner and other Rio Metro services. Today, each agency is serving both transit-dependent populations and attracting an emerging market of riders who are foregoing single-occupancy vehicle travel in lieu of transit. Furthermore, an increased preference for transit by both Millennials and seniors suggests that this trend will continue in coming years. Nevertheless, this growth has not come without new challenges. While the MTB is committed to dedicating funds for the capital improvement of transit, both ABQ Ride and Rio Metro are operating at budgetary capacity, with little opportunity to expand service.
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Meanwhile, congestion and low-density land use patterns, particularly on Albuquerque’s Westside, complicate transit’s ability to operate efficiently throughout the AMPA.
Despite these challenges, the analysis and recommendations presented in this section provide a series of next steps toward realizing the Preferred Scenario. First, the conceptual transit network demonstrates how the AMPA’s transit system could expand if new sources of revenue were identified that not only facilitate capital improvements, but also permanently fund operations (Rio Metro’s remaining 3/8-cent gross receipts tax capacity being one possible source). Second, developing planned Bus Rapid Transit projects along Central Ave and University Blvd, and in northwest Albuquerque/southern Rio Rancho (Paseo del Norte and Coors Blvd), are critical to expanding high- capacity transit services in the AMPA that have proven to bolster ridership. This action is already supported by the MTB’s recent passage of a revised transit mode share goal that sets aside funding support for bus rapid transit, Rapid Ride and other high-capacity alternatives. Finally, a greater degree of coordination between ABQ Ride and Rio Metro— a topic of discussion in Rio Metro’s evolving visioning process—may result in increased service efficiencies, more integrated ticketing and scheduling, and joint travel demand management and technology initiatives designed to attract new riders.
While the 2040 conceptual transit network provides some utility as a planning exercise, it reinforces the basic premise that additional revenue is a necessary pre-condition to realizing the Preferred Scenario. Any significant expansion of transit service in the AMPA will require a new revenue stream for both capital improvements and the long-term sustainability of operations. While Rio Metro’s remaining 3/8- cent gross receipts tax capacity may be the most obvious source, the funding could be assembled from several means, including gross receipts taxes, local agency contributions, general obligation bonds, capital outlay, and/or federal grants.
Intertwined with any effort to increase revenue in support of transit, a robust long-range transit plan is needed for several reasons:
• Garnering guidance and direction from constituents • Reassessing and refining existing routes and schedules as needed (i.e., the relative success of the existing transit network should not be assumed) • Integrating the findings of recent studies and short-range service plans • Determining the appropriate location and type of new services • Modeling the effectiveness of the proposed network using the MRMPO’s new land use and transportation models • Prioritizing capital improvements and operational enhancements • Establishing systemwide and corridor-specific performance measures to better evaluate the relative success of existing and future routes • Clarifying funding needs and specific revenue generation strategies
Even with additional revenue and a long-range transit plan in hand, the AMPA’s member governments must also make a concerted effort to adopt complementary land use plans and policies along key transit corridors and stations such as those served by BRT, Rapid Ride, and popular local routes. Doing so
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will improve the cost efficiency and productivity of transit and benefit the residences and businesses that locate in these areas.
Absent implementation of the previous strategies, the AMPA’s transit services will generally function “as is,” with limited opportunities for expansion except where efficiencies or savings can be realized. For example, as noted earlier, ART operational costs can be partly offset by the Rapid Ride services it is supplanting; however, the UNM/CNM, Paseo del Norte or Coors BRT projects could not begin operations until additional funding is secured. Nevertheless, it should not be assumed that existing services would remain unchanged. Economic upturns or downturns that influence transit revenues could require ABQ Ride and/or Rio Metro to modify routes and schedules accordingly.
In the interim, the City of Albuquerque, with the support of Rio Metro and other AMPA member governments, should move forward on the Albuquerque Rapid Transit. Meanwhile planning work on other BRT projects should continue, as necessary, such that each, in order of priority, would be ready to enter the project development phase of the Federal Transit Administration’s Small Starts program when funding commitments are secured.
Furthermore, in addition to developing new physical services, the use of existing transit services should be encouraged by coordinated travel demand management (TDM) efforts. For example, the ABQ Ride/UNM bus pass program provides free bus passes to all students earning at least three credit hours, and to other qualifying employees and faculty. This has undoubtedly led to the high percentage of student ridership that ABQ Ride enjoys and to the success of routes like the 790 Rapid Ride. Likewise, Rio Metro launched a pilot program in November 2014 that allows veterans to ride the Rail Runner for free. This program will run through 2015, giving time to evaluate its influence on Rail Runner ridership. As another example of how TDM can supplement physical services, Rio Metro’s Smart Business Partnership has also succeeded in encouraging local business to provide incentives such as flexible schedules that accommodate transit use or reduce peak hour commuting, subsidized transit passes, and improvements/services including bike racks and lockers, preferred carpool parking spaces, and shuttles. Similar efforts will continue into the next decade, as Rio Metro and ABQ Ride will receive federal funds beginning in FY 2016 for coordinated TDM programming and marketing.
ABQ Ride and Rio Metro could also consider technological enhancements that improve a rider’s capability to both understand and efficiently navigate transit services such as:
• Continued implementation of real-time technologies through smartphone apps, the internet, and displays at stops/station • Improved on-board Wi-Fi service, especially on high-capacity and long-distance routes • Coordinated, centralized trip-planning via one website and/or app • “Smart” ticketing and digital payment services that span modes and providers
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3.5 Pedestrian and Bicycle
Currently, trips taken by walking and bicycling make up only a In a Nutshell… modest share of the total trips taken in the region. The Mid-Region Household Travel Survey shows that seven percent of trips are Takeaways: Providing increased made by walking and two percent of trips are made by bicycling. transportation options is an However, there are important benefits associated with traveling by important strategy for these modes, including improved public health outcomes and increasing individual mobility reduced reliance on single-occupancy vehicles. Policies and and for addressing long-term investments are needed to create vibrant places where people want congestion. Particularly to be (and walk and bike to) and safe conditions to travel to such important is the ability to make places without a private vehicle. short trips by walking and bicycling. This involves better
understanding of the obstacles 3.5.1 Challenges and Needs to walking and biking and prioritizing efforts to support Despite the general dependence on single-occupancy vehicle travel, the decision to walk and bicycle. there are indications that walking and bicycling could be a more Contents: This section describes common way to get around. For instance, of the households some of the opportunities for participating in the Mid-Region Household Travel Survey, 56 expanding pedestrian and percent reported having bicycles, showing that biking as an activity bicycle travel opportunities. is fairly widespread. In addition, people are familiar with walking Important products include and and bicycling since 20 percent of households include someone who update to the Pedestrian takes some form of walk or bicycle trip on a regular basis. Another Composite Index (see p. 3-109) indicator that walking and bicycling could be feasible for people is and a ap of long range that 19 percent of trips done by driving are less than 2.5 miles, transportation system bicycle which is approximately a 15-minute bicycle ride. Looking at walking and pedestrian projects (p. 3- feasibility, 11 percent of trips taken by driving are under a mile, 113). which is approximately a 20-minute walk. The Preferred Scenario strategy of providing more mixed-use development where homes, Goals and Objectives: shopping, entertainment and work are closer together decreases Supporting active transportation distances between destinations. However, given that many options such as walking and vehicular trips in the AMPA are short, this shift also requires a biking is consistent with the better understanding of why people are choosing not to bicycle and MTP goals of Mobility and Active walk. Places.
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Figure 3-35: All Trips by Mode, Household Travel Study
Walk 227,000 trips: 7%
Public Bus 78,000 trips: 3%
Auto/Van/Truck School Bus as Driver or 74,000 trips: 2% Passenger 2.6 million trips: Bicycle 48,000 trips: 2% 85% Carpool 27,000 trips: 1% Other 15,000 trips: 0.5% Train 8,000 trips: 0.3%
The public questionnaire conducted as part of the development of the 2040 MTP asked people’s opinions about transportation. Safety from traffic was reported as the most common issue for bicycling. Open ended responses also revealed that discontinous bicycle facilties are a large concern. For walking, the most common issue was that distances are too far. People also cite safety from traffic and sidwalk conditions as being issues for walking.
Figure 3-36: Top Reported Issues for All Transportation Modes, 2040 MTP Questionnaire
Driving: Poor driver behavior 70%
Bicycling: Doesn’t feel safe from traffic 62%
Driving: Traffic congestion 60%
Walking: Distances are too far 60%
Train: Schedule does not meet my needs 49%
Public Bus: Takes too much time 46%
0% 20% 40% 60% 80% 100%
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The region’s safety data does not fully reveal what people need to feel safe from traffic. However, it does provide useful information. Overall, the data indicate that walking in New Mexico is much less safe than in other states. New Mexico frequenty ranks as one of the highest states for pedestrian fatalities per capita. (In 2012, New Mexico ranked second in the nation for pedestrian fatalites per capita, up from fifth in 2011.) This has led the Federal Highway Administration to identify Albuquerque as a “focus city” and New Mexico a “focus state” for pedestrian safety interventions. Bicyclist fatalities tend to be less common events resulting in very volatile rankings. In 2012, New Mexico’s ranking for bicyclist fatalities per capita was fourth with seven bicyclist fatalities. In 2011, it was 17th with four bicyle fatalities.
The Federal Highway Administration’s focus city effort has led to a better examination of crash data related to pedestrians and bicyclists. Pedestrian crashes tend to cluster around major transit lines and to some extent bicyclist crashes do as well. Often the best transit routes are on roadways that do not include bikeways. This contributes to 62 percent of bicycle crashes occuring on roadways with no bicycle infrastructure. One location is worth pointing out. The intersection of Central Ave and San Mateo Blvd is surrounded by mixed land uses and very high employment and residential densities. It is also the junction of two major transit lines. Each seven to eight lane leg of this intersection carries between 25,000 to 27,000 vehicles on an average weekday. This location has the highest number of pedestrian and bicyclist crashes in the region, and most likely the state. As the region looks to transit and mixed use development to address congestion, mobility, and a variety of other regional issues, it will be important to avoid conflicts that occur by pairing land uses and services that promote walking and bicycling with high-speed, high-volume arterials.
Pedestrian Composite Index
MRMPO updates and maintains the Pedestrian Composite Index, a tool to help prioritize roadways for pedestrian improvement and address the need to reduce pedestrian crashes. The Pedestrian Composite Index uses regional data to compare aspects that would deter pedestrian travel (crashes, speeds, volume, number of lanes) to aspects that generate pedestrian activity (transit, schools, retail densities, residential densities). Roadways with both high deterrent and high generator scores indictate that the location would benefit more from pedestrian improvements compared to places that either have low deterrent and/or low generator scores. This tool helps to compare roadways in the region, and it provides a wide variety of pedestrian-related data for segments of roadways. However, it does not provide details such as the presence and width of sidewalks, which is necessary to calculate pedestrian level of service. Nor does it provide information on future demand for walking.
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The Pedestrian Composite Index has been updated to include the following data:
Table 3-12: Inputs to Pedestrian Composite Index
Pedestrian Deterrent Data Pedestrian Generator Data
• Pedestrian crashes • Proximity to schools • Number of lanes • Proximity to bus stops and high volume bus stops • Average weekday • Proximity to parks, recreational facilities, cultural centers, traffic community centers, and libraries • Observed off-peak • Density of restaurants, coffee shops, grocery stores, and speeds entertainment • Roadway connectivity – number of four-leg intersections per
square mile • Percent of population 16 years+ who walk or take transit to work (ACS 2009-2013) • Percent of households with 0 vehicles or fewer vehicles than workers (ACS 2009-2013) • Transit ridership • Net residential density • Land use mix
Figure 3-37: Distribution of Pedestrian Composite Index Scores for the Region
9 High priority quadrant: 8 Poor walking conditions with pedestrian demand All Roadway 7 Segment Scores 6
5 Regional Median Deterrent Score 4 (17.17)
3 Regional Median Generator Score 2 (2.97) 1 Pedestrian Generator: Factors that attract attract that Factors Generator: Pedestrian
pedestrians or indicate pedestrian presence pedestrian or indicate pedestrians 0 0 10 20 30 40 Pedestrian Deterrent: Factors that make the area difficult or undesirable to walk
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Map 3-25: Pedestrian Composite Index Scores
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3.5.2 Strategies for Increasing Bicycle and Pedestrian Activity
Long Range Transportation Systems Guide
The main strategy developed for the 2040 MTP to improve the safety and comfort of walking and bicycling in the AMPA is the Long Range Transportation System Guide (LRTS) Guide found in Appendix H. This guide is the region’s Complete Streets design guidance document and provides recommendations on roadway connectivity and conceptual roadway design based on the surrounding context. Much of this guide is based on nationally-recognized documents including: the Institute for Transportation Engineers Recommended Practice Designing Walkable Urban Thoroughfares; the NACTO Urban Design Guide; the NACTO Urban Bikeway Design Guide; AASHTO’s Designing Pedestrian Facilities; and AASHTO’s Designing Bicycling Facilities. The purpose of the LRTS Guide is to provide guidance that goes beyond minimum roadway design standards that often do not provide a level of comfort necessary for people to walk and bicycle. As a Complete Streets guidance document, the LRTS Guide also provides recommendations on identifying opportunities and considerations for improving roadways for all users.
The LRTS Guide builds upon past guidance with the Long Range Bikeway System. This system map shows where future bikeways are planned in order to help preserve routes and future connections. Accomodation for bicyclists is evolving rapidly with shared lane markings, bicycle boulevards/neighborhood greenways, and barrier protected bicycle lanes/cycle tracks. Although the region has very few of these new facilities (and no cycle tracks), the LRTS Guide provides study areas for cycle tracks and futher guidance based on the NACTO Urban Bikeway Design Guide.
Figure 3-38: Exceprt from Long Range Bikeway System
One of the guiding principals of the LRTS Guide is to support the principles of the Preferred Scenario. With this scenario, walking takes a new, important role in regional transportation with the designation of activity centers. Activity centers prioritize pedestrian accessibility and promote a “park once” approach where people driving to these locations can park once and walk to a variety of destinations.
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Map 3-26: Long Range Transportation System Pedestrian and Bike Projects
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Most activity centers in the in the Preferred Scenario focus on providing higher residential and employment densities along with other land uses to allow destinations to be closer together. Being able to complete trips by walking within these centers is a key element in providing overall regional mobility and access.
The LRTS Guide also includes a checklist and performance measures, which are tools to help inform project development and understand how well design interventions work to encourage trips made by walking and bicycling. Specifically, the checklist is designed to help transportation professionals keep track of the many considerations involved when providing multiple transportation options. The performance measures help to identify current and desired roadway conditions given the surrounding context and purpose of the facility being examined. Many of the measures such as average weekday daily traffic (AWDT) and travel time are already collected by MRMPO, while MRMPO is working to provide data on non-motorized counts.
Closing Gaps in the Regional Bikeway and Trail Network
The region includes many physical barriers to walking and bicycling, particularly with the river and interstate system, and the public has consistently requested addressing gaps in the bikeway network through comments, questionnaire responses, and at outreach events.The good news is that since the adoption of the 2035 MTP, six major pedestrian-bicycle grade-separated crossings have been built. The importance of closing gaps is reflected in the Project Prioritization Process. For instance, where a project makes a connection between two existing links of the bikeway and trail network, that project recieves more priority points than a project that only extends the network.
Through the Transportation Accessibility Model (TRAM), MRMPO measures how well a planned crossing will serve the surrounding community by looking at how many people would be served and how many jobs would be accessible if the crossing existed. This method provides a general way to examine how a proposed crossing will improve accessibility in an area. As shown in Figure 3-39, a grade-separated crossing over Coors Blvd along Paseo del Norte is the MTP crossing project that provides the best accessibility to the surrounding area using this analysis. Figure 3-39 and Table 3-13 show the area’s current accessibility along with the increased accessibility if this crossing were in place.
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Figure 3-39: Bicycle Accessible Areas with a Paseo del Norte Crossing over Coors Blvd
Table 3-13: Improved Accessibility with Paseo del Norte Crossing over Coors Blvd
2012 2012 2012 Population Jobs Households
Current population, jobs, and housing accessible 7,033 2,229 2,703 without crossing
Population, jobs, and housing accessible if crossing 11,980 3,082 4,552 existed Difference 4,947 853 1,850 % Change 70% 38% 68%
Local Efforts to Promote Walking and Bicycling
There are several local efforts to encourage and support walking and bicycling that help support the goals of the 2040 Metropolitan Transportation Plan:
• In January 2015, City of Albuquerque adopted a Complete Streets Ordinance. The ordinance aims to implement cost effective improvements for multi-modal travel by taking advantage of opportunities as they arise during routine maintenance and street reconstruction projects. It also adopts, by reference, nationally-recognized standards for multi-modal facilities to
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complement existing standards in the Albuquerque’s Development Process Manual, improves communication about street projects, and would require the City to consider multi-modal level of service (MMLOS), rather than just conventional vehicle (LOS), when working on larger roadway projects.
Figure 3-40: Coal Ave Before and After Reconstruction
• The City of Albuquerque’s Bikeways and Trails Facility Plan (BTFP) is under consideration by City Council for final approval. The proposed BTFP will update and combine the City’s two current bikeways and trails plans into one resource. Combining these plans will help the City of Albuquerque improve overall network connectivity and provide better coordination and management of the growth of this system. The overarching plan purpose is to ensure a well- connected, enjoyable, and safe non-motorized transportation and recreation system throughout the metropolitan area. The BTFP will reflect the desires of area residents to continue developing and improving a multi-use trail and bikeway network for commuting and recreational uses, as well as daily needs. The BTFP describes the existing system, policies, programs, recommendations, and proposed projects. This plan will guide future investment in Albuquerque’s bikeways and trails system including facility improvements, new facilities, priority connections, maintenance, and education/outreach programs. • In March 2015, the Downtown Walkability Analysis was adopted as a city policy for prioritizing multi-modal improvements in Downtown Albuquerque. This study was completed in the fall of 2014 by Jeff Speck, the author of Walkable City: How Downtown Can Save America One Step at a Time. This Downtown Walkability Analysis provides recommendations and rationale to improve walking and bicyling in the region’s urban core. • Esperanza Community Bike Shop is a non-retail community bike shop operated by the City of Albuquerque’s Parks and Recreation Department. Esperanza is located on West Central Ave in one the region’s environmental justice areas. The community bike shop offers a varity of safety and maintenance classes, open shop hours for the general public during which they can fix their bicycles as well as an Earn-a-Bike Program. It is a community hub where a wide variety of people
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of all ages go to improve skills related to bicycling. Currently, officers from the Bernalillo County Sheriff’s Department and Albuquerque Police Department go to Esperanza to maintain their bicycles, which has provided a surprisingly positive means of law enforcement interacting with the surrouding community. • The Valle de Oro National Wildlife Refuge, the first such refuge in an urban area in the U.S. southwest, recently received a Federal Land Access Program (FLAP) grant to improve pedestrian and bicycle access to the refuge along 2nd St. The refuge fulfills a goal of President Obama’s America’s Great Outdoors initiative to reconnect residents across the county to the natural environment. The refuge, once fully open to the public, anticipates in excess of 250,000 visitors per year. • As part of ABQ the Plan, the City of Albuquerque is building a 50-Mile Activity Loop. When completed the Loop will provide a contiguous network of trail and on-street facilities for walking, running and bicycling in an effort to increase quality of life for residents, enhance economic development opportunities, promote tourism, and spur private sector investments. The Loop builds upon existing infrastructure, focuses on providing key connections that link important destinations and trails, and promotes health and wellness benefits for Albuquerque residents and visitors. The Activity Loop also travels through parts of the South Valley and the International District, two areas with disproportionately poor public health outcomes. • Downtown Main Street and MRCOG have partnered on a bikeshare pilot project in Downtown Albuquerque and are investigating the feasibilty of a larger, more regional bike share system. Bikeshare is a transit system that consists of a network of stations where bikes are publicly available for short-term rental through several different fare options. Bike share trips are typically short distances and for a brief amount of time. The pilot program is expected to begin operations in May 2015.
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3.6 Safety
Nationally, despite lower levels of driving per capita, better vehicles and facilities, and the integration of safety into planning processes, In a Nutshell… there was a 1.13 percent increase in the fatality rate and a 6.7 percent increase in injury rate per million vehicles of travel from 2011 Takeaways: The Albuquerque to 2012. metro area suffers from disproportionately high crash Regionally, the data trends show mixed results. From 2011 to 2012 rates, although some progress has the number of crashes in the region decreased by almost 16 percent. been made in recent years. Safety Despite this decline in the number of overall crashes, the number of is a MAP-21-designated national fatal crashes in the AMPA region rose by 42 percent in 2012 goal area, and addressing high compared to 2011. In addition, New Mexico’s fatality rate of 1.43 per risk locations and the causes of 100 million vehicle miles traveled in 2012 is still above the national crashes is critical in providing a average fatality rate of 1.13 per 100 million vehicle miles traveled. transportation system that meets Overall, there were approximately 84,153 traffic-related crashes in the needs of all users. the AMPA that occurred between 2008 and 2012. Of these crashes, Components: This section 0.27 percent resulted in fatalities, 34.4 percent resulted in injuries explores crash data for the region and the remaining crashes resulted in property damage only (see for all modes, providing crash Table 3-14). rates and other statistics, and Table 3-14: Crashes by Type in the AMPA highlighting key areas where safety issues need to be 2008 2009 2010 2011 2012 Total addressed (see Maps 3-27 through 3-30). Current legislation Fatal 58 50 53 54 77 292 and planning efforts are described, including Complete Injury 4,277 4,646 5,127 5,545 4,355 23,950 Streets ordinances, conducting Property road safety audits, and pursuing a 10,523 11,041 12,551 13,610 12,186 59,911 Damage pedestrian safety action plan for the region. An analysis of Total 14,858 15,737 17,731 19,209 16,618 84,153 potential crash rates between the Trend and the Preferred Scenarios
is also included. According to the Centers for Disease Control and Prevention, traffic Goals and Objectives: The MTP crashes are the leading cause of unintentional death in the United goals of Mobility and Active Places States for the age group 4 through 34. The safety of a transportation are supported by improving system also significantly impacts how accessible services are to the multimodal options and by transportation system user. Transportation safety is therefore a supporting health, safe and critical public health issue and continues to be highlighted as a key convenient travel options. planning emphasis area in federal transportation legislation.
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Federal legislation requires that the planning process include consideration of the safety of the transportation system for motorized and non-motorized users. The latest federal transportation legislation, MAP-21, identifies safety as a national goal area and requires states to set targets to improve safety. If targets are not met then funding allocation can change. This legislation also increases the amount of funds for the Highway Safety Improvement Program (HSIP) and requires expanded data collection and analysis as well as more stakeholders to be involved in the fund allocation process. Even though in recent years there have been traffic-related safety improvements, the overall fatality crash rates have increased in the AMPA, New Mexico and United States (see Figure 3-41). Clearly there is still much work to be done in reducing crash-related fatalities in the region.
The primary focus of safety planning includes the analysis of crash data to identify effective strategies for reducing crashes. However, safety planning may also include education and enforcement strategies, the use of ITS technology, and exploring how roadway design can improve safety for users of all ages and abilities.
Motor vehicle crashes and fatalities increased in 2012 after six consecutive years of declining fatalities on our nation’s highways. The nation lost 33,561 people in crashes on roadways during 2012, compared to 32,479 in 2011. The increase in crashes, and the resulting fatalities and injuries, can be seen across many crash characteristics—vehicle type, alcohol impairment, location of crash, etc.—and does not seem to be associated with any one particular issue. In fact, crashes associated with some traditional risk factors, fell in 2012. For example, young drivers involved in fatal crashes continued to decline, as they have since 2005. Despite the general downward trend in overall fatalities in recent years, pedestrian and motorcycle fatalities have shown an upward trend. This was again the case in 2012, as motorcycle and pedestrian fatalities increased by 7 and 6 percent, respectively.
NHTSA Traffic Safety Facts – 2012 Motor Vehicle Crashes: Overview
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Figure 3-41: Fatal Crash Rates per 100,000 Population: AMPA, New Mexico, and US, 2008-2012
25
AMPA 20 18.2 17.7 17.5 16.9 16.9
NM
15 12.3 11.05 10.6 10.4 10.7 10 US 7.4 6.7 7.0 8.9 5.8 5
0 2008 2009 2010 2011 2012
3.6.1 Crash Rates
Crash rates provide a more accurate picture than total crash numbers of the most dangerous intersections in the AMPA area. High crash rates may occur for a variety of reasons, including driver inattentiveness and speed. However, other factors include lack of adequate facilities for the more vulnerable non-motorized modes, roadway design that encourages speed, and sight issues.
Crash rates were calculated on thoroughfare intersections in the AMPA for the period of 2008 to 2012 by dividing the number of crashes at an intersection by the number of vehicles entering the intersection. These rates are expressed as crashes per million vehicles. Crash rates were also calculated for fatal and injury related crashes, and bicycle and pedestrian involved crashes. See Maps 3-27 through 3-30.
MRMPO provides an annual report on crash data called General Crash Data Report and Trends in which crash data received from the University of New Mexico Geospatial and Populations Studies department are analyzed to assess trends that may be unique to the AMPA. This annual report categorizes crashes by severity, cause, crash type, age, alcohol involvement, pedestrian, bicycle, and truck involvement and provides intersection crash rates. For example, similar to national trends, the number one reported cause for crashes is “driver inattention,” followed by “failure to yield” and “following too close.” This report helps MRMPO and its regional partners identify problem areas and trends that need further investigation (this report is available on MRCOG’s website at www.mrcog-nm.gov). The following are some important findings:
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• The intersections with the highest crash rates are primarily concentrated along Coors Blvd, Paseo del Norte and Central Ave • Areas with the highest crash rates for bicyclists and pedestrians are around the UNM campus, Downtown Albuquerque, and the area in the Northeast Heights along Lomas Blvd • Intersections that are both in the top ten for crash rates and fatal/injury crash rates include Paseo del Norte and Coors Blvd, 7 Bar Loop Rd and Coors Blvd, Central Ave and Unser Blvd and Central Ave and Coors Blvd • One intersection, Central Ave and San Mateo Blvd, is included in the top fifteen for both pedestrian and bicycle involved crashes
Key Findings for Motor Vehicle Involved Crashes in the Region
• There were 84,153 police-reported vehicle crashes between 2008 and 2012 • On average, a traffic accident occurred every 31 minutes, a person was injured nearly every couple of hours and killed every six days • The motor vehicle fatality rate per 100,000 population increased by nearly 20 percent from 2008 to 2012 • Crashes were highest in the afternoon on weekdays but were more evenly distributed throughout the day on the weekends • Fatal crashes were the highest in the early to mid-afternoon on the weekdays and late night to early morning on the weekends • Alcohol-involved crashes accounted for only 4.5 percent of all crashes, but 44 percent of all fatal crashes • The proportion of male drivers in fatal crashes was nearly twice as high as the proportion of female drivers • Persons 20 to 24 years-old were involved in more fatal crashes than any other age group
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Pedestrian Crash Data
A particularly alarming statistic for the AMPA is that of all fatal crashes, 27 percent involved a pedestrian. Overall, pedestrian and bicycle crashes occur most frequently along Central Ave and Montgomery Blvd. In the AMPA, the percentage of fatal crashes involving pedestrians increased by 50 percent since 2011, while the percentage of fatal crashes involving a bicyclist increased by 2.7 percent since 2011.
Key Findings for Pedestrian Involved Crashes in the AMPA, 2008-2012:
• On average, a pedestrian was involved in a traffic accident every two days, injured every 2.2 days, and killed every month • Nearly 58 percent of pedestrian fatalities occurred on Friday, Saturday or Sunday and between the hours of 9 p.m. to 12 p.m. • Alcohol, either on the part of the driver or pedestrian, was a major factor in approximately 70 percent of pedestrian fatalities • Twenty-five percent of pedestrian fatalities were attributed to pedestrian error • Nearly 70 percent of pedestrians killed were male • Pedestrians age 70 and over accounted for 10 percent of all pedestrian fatalities • Male drivers were involved in 63 percent of pedestrian fatalities • Drivers 20 to 24 had the highest percentage of pedestrian fatality involvement • Sixty-nine percent of pedestrian fatalities occurred during the dark
Crash information is an important factor in assessing pedestrian transportation safety. Nationally, pedestrian fatalities comprise on average about 12 percent of all motor vehicle crash deaths. Although New Mexico’s share of pedestrian fatalities of 12 percent has been close to the national average, the pedestrian fatality rate per 100,000 residents is still one of the highest in the nation (see Figure 3-42).
Table 3-15: AMPA Pedestrian Crash Data by Severity
2008 2009 2010 2011 2012 Total
Fatal 14 8 11 10 21 64
Injury 151 139 180 196 171 837
Property Damage 28 20 22 16 35 121
Total 193 167 213 222 227 1,022
One simple strategy is to slow the speed of automobile traffic in certain locations or along roadways with high pedestrian activity. A study involving pedestrian fatality rates by vehicle speed concluded that
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for a pedestrian and motor-vehicle involved crash there is an 85 percent chance that the impact will be fatal to the pedestrian if the speed is 40 miles per hour (MPH) or above. By contrast, there is only a five percent chance of a pedestrian fatality if the speed is at 20 MPH and below and a 45 percent chance if the speed is between 20 and 30 MPH.
In the AMPA, a total of 64 fatal and 837 injury crashes involving pedestrians occurred between 2008 and 2012 (see Table 3-15). Collisions involving pedestrians accounted for one percent of all crashes, but they accounted for 22 percent of fatal crashes.
Figure 3-42: Pedestrian Fatality Rates per 100,000 Population: AMPA, New Mexico, and US, 2008-2012
4
AMPA 2.92 3
NM 2.39 1.97 1.97 2 1.94 1.60 1.82 1.51 US 1.42
1.44 1.33 1.38 1 1.14 1.04 0.91
0 2008 2009 2010 2011 2012
Bicycle Crash Data
Nationally, bicycle fatalities comprise on average about 1.8 percent of all motor vehicle crash deaths in recent years. Although the proportion of bicycle fatalities in New Mexico was below the national average at 1.3 percent, the bicycle fatality rate per 100,000 residents has exceeded the national bicycle fatality rate in the past three years (see Figure 3-43).
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Key Findings for Bicycle Involved Crashes in the AMPA, 2008-2102:
• Twenty-five percent of all fatal crashes involving bicyclists occurred during the dark • Nearly a quarter of all motor vehicle fatalities and injuries involving bicycles occurred between the hours of 3 through 5 PM • Alcohol was a major contributing factor in nearly seven percent of all motor vehicle fatalities and injuries involving bicycles • Nearly 65 percent of cyclists killed or injured were male • Sixteen percent of cyclists killed or injured in traffic accidents were under the age of 16 • Drivers 20-24 had the highest percentage of involvement in cyclist fatalities and injuries
In the AMPA (2008-2012), there were 958 motor vehicle collisions involving bicycles. Those collisions resulted in 715 injury and 12 fatal crashes (see Figure 3-43). Collisions involving bicycles accounted for one percent of all crashes but accounted for four percent of fatal crashes. In 2012 bicycle-related fatalities increased 42 percent from 2008. This figure constitutes a greater percentage of total motor vehicle crash deaths than at the state or national level.
Table 3-16: Bicycle Fatality Rates per 100,000 Population
2008 2009 2010 2011 2012 Total
Fatal 2 0 5 1 4 12
Injury 144 141 146 146 138 715
Property Damage 43 48 44 40 56 231
Total 189 189 195 187 198 958
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Figure 3-43: Bicycle Fatality Rates per 100,000 Population: AMPA, New Mexico, and US, 2008-2012
0.8
AMPA 0.6 0.58
0.45 NM
0.4 0.35 0.39 0.34 US 0.26 0.22 0.23 0.21 0.20 0.2 0.24 0.19 0.15 0.11 0.00 0.0 2008 2009 2010 2011 2012
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Map 3-27: Crash Rates by Intersection, 2008-2012
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Map 3-28: Injury and Fatality Crash Rates by Intersection, 2008-2012
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Map 3-29: Pedestrian Crash Rates by Intersection, 2008-2012
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Map 3-30: Bicycle Crash Rates by Intersection, 2008-2012
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3.6.2 Safety Issues and Trends
Alcohol Involvement
The involvement of alcohol in crashes is a challenge that continues to afflict the region. According to the National Highway Traffic Safety Administration’s Fatality Analysis Reporting System (FARS) database, alcohol-impaired fatalities accounted for 31 percent of all traffic deaths in 2012 nationwide. Following are some alcohol/drug related crash statistics for the AMPA in 2012:
• 4.7 percent of all crashes involved alcohol/drug • 50 percent of fatal crashes involved alcohol/drug • Alcohol-involved fatal crashes occurred more often on Saturday and Sunday (43 percent of fatal crashes involving alcohol) and during the last hours of the evening through the early-morning hours • During the week alcohol-involved crashes occurred most often during late afternoon through the early hours of the morning • The highest percentage of alcohol-related crashes involved 20-24 year-old drivers (most of whom are male)
Youth Safety – National
Youth traffic safety is increasingly an important issue for the region and nation. Data from the National Highway Traffic Safety Administration provides the following information on young drivers from a national perspective:
• In 2012, there were 1,875 young drivers (15 to 20 years old) who died in motor vehicle crashes, a decrease of six percent from 1,993 in 2011 • 184,000 young drivers were injured in motor vehicle crashes in 2012, an increase of two percent from 180,000 in 2011 • The two-year comparison of total driver involvement in fatal crashes showed a three percent increase from 43,840 in 2011 to 45,337 in 2012. During this same period, young driver involvement decreased two percent from 4,362 in 2011 to 4,283 in 2012 • Motor vehicle crashes are the leading cause of death for all 15-to 20-year-olds, according to the most recent data available (2009) from the National Center for Health Statistics • Young drivers accounted for six percent (12.6 million) of the total, a 0.8-percent increase from the 12.5 million young drivers in 2002. Population for this age group increased from 2003 to 2012 – by 3.8 percent
Youth Safety – Regional
2012 Recent Trends in the AMPA:
• Drivers 20-24 years old had the second highest rate of involvement in fatal crashes than any other age groups
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• The proportion of 20-24 years old male drivers in fatal crashes was nearly four times as high as the proportion of female drivers in the same age group • Drivers 20-24 years old had the highest rate of involvement in pedestrian-related crashes • Drivers 20-24 years old had the highest rate of involvement in bike-related crashes • Drivers 20-24 years old had the highest rate of involvement in drug/alcohol-related crashes
3.6.3 Safety Planning
Safety challenges in the AMPA include, but are not limited to, addressing major intersections and corridors that have high crash rates, alcohol-involved crashes, crashes where young drivers are involved, and the high occurrence of fatal and injury pedestrian crashes. In order to address these issues, driver behavior and roadway design need to be investigated. Improving safety for the most vulnerable users, such as pedestrians and bicyclists, will provide a safer transportation system for all modes of transportation and increase mobility options for all users.
When addressing transportation safety issues in the AMPA, there are federal, state, and regional plans and guidance to consider. The Federal Highway Administration has identified “4Es” for making roads safer: engineering, education, enforcement, and emergency medical services. The FHWA also further stresses the importance of developing data-driven systemic approaches and technologies to analyze safety issues and considering safety needs early-on and throughout the project development process.
Improving safety throughout the region not only saves lives and reduces injuries, but also helps mitigate both the direct and indirect costs of crashes including property damage, emergency services, medical bills and loss of time at work. In 2010, the Centers for Disease Control and Prevention (CDC) estimated the cost of medical care and productivity losses was over $99 billion dollars for motor vehicle-related injuries and $41 billion for crash-related deaths in a year. Improving safety can also help reduce congestion; according to a study done by AAA in 2008, 40 to 50 percent of all non-recurring congestion may be associated with traffic incidents.
Integration with Project Prioritization Process
MRMPO has integrated safety in its short-range planning process through its identification as a key factor in the Project Prioritization Process used for evaluating and selecting TIP projects for funding and implementation. Projects that are proposed at intersections with high crash rates or along corridors with high pedestrian crashes receive points in the Project Prioritization Process (the more points a project receives the more likely it is to be selected to receive federal funding. Projects are awarded additional points if the project’s primary purpose is to address safety or if a project implements safety strategies. Currently, there are projects in the TIP that specifically address safety issues. These projects address a variety of safety needs such as street lighting, crosswalk markings, roundabouts, median barriers, railroad crossing improvements, and signal timing.
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NMDOT Comprehensive Transportation Safety Plan
The NMDOT’s Comprehensive Transportation Safety Plan (CTSP), a federally-required effort to reduce traffic crashes, presents 12 emphasis areas and 94 strategies. For the years following 2010, the goal of the CTSP is to continue to reduce fatalities proportional to the American Association of Highway Transportation Officials (AASHTO) goal of an annual reduction of 1,000 fatalities nationally, or 2.3 percent per year. This type of reduction would result in 218 fewer fatalities by the year 2025 in New Mexico. The efforts to address safety as a result of the CTSP have made a significant contribution to achieving this goal. Unfortunately, even though considerable progress has been made in reducing the number of deaths and serious injuries on the roads in New Mexico, the fatality rate continues to remain above the national average.
Intelligent Transportation Systems
Using ITS technology to increase knowledge of roadway conditions for the users (such as real time traffic delay information) has proven to reduce travel delays and increase safety on the roadway. In addition, managed lanes and facilities dedicated to high occupancy vehicles or truck traffic can be effective in mitigating congestion, increasing traffic safety, and encouraging increased carpooling and transit use. Additional ITS applications that can help improve safety include incident detection and quick response times from emergency and safety crews, dissemination of real-time incident information to motorists, and minimizing construction zone periods.
Policy and Regulations
A state law passed in 2014 that restricts cell phone use so that drivers are prohibited from sending or viewing text messages while driving. There has also been discussion at the state level about requiring seniors to renew their licenses more frequently, including taking a test of physical reaction time. For younger drivers discussion has begun on extending permit duration and increasing penalties for any kind of cell phone use while driving.
Educational Initiatives
MRMPO has undertaken educational initiatives over the years including multi-modal level of service presentations, road safety audits, and webinars about safe street design. This type of initiative plays a critical role in ensuring that people, especially engineers and planners, have access to the latest information and design regulations. Education is needed particularly in relation to how to design better for pedestrians, reduce alcohol involved crashes, and reduce distracted driving for youth drivers.
Safety Action Plan
The creation of a regional safety plan and/or task force would support the development of a prioritization process for spending Highway Safety Improvement Program (HSIP) funds and other safety- related funding sources in the AMPA. A safety task force could also review best practices and respond to new federal and state legislation and funding opportunities that become available.
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An AMPA safety plan would continue to support crash data collection and analysis, but would also encourage collaboration among stakeholders such as law enforcement agencies, health institutions, schools, and engineering departments. This process could help establish and strengthen working relationships, identify safety programs and coordinate activities that already exist in the region, and ascertain if data improvements are needed.
Comprehensive safety planning requires training on effective safety measures, involvement in regional incident management plans, and education for decision makers and the public. Safety measures should include human factors research, safe street design, and the use of technology to effectively reduce crashes. Some of these issues are expanded upon below.
Multimodal Travel and Complete Streets
Improving the connectivity and design of the transportation system, across and between modes, through intersections and railroad crossings, is integral to maintaining a safe transportation system. Promoting the development of street patterns and designs that support pedestrian and bicycle comfort, convenience, and safety and providing route options for drivers—particularly for travel to public transit stops, schools, colleges, universities, jobs, stores, parks and other destinations—is key to a safe roadway system.
Walking can be an important part of someone’s route to work or school. Yet, as road traffic increases so do the hazards confronting pedestrians. Identifying and alleviating these hazards reduces pedestrian injuries and fatalities and encourages more people to walk, ultimately improving the health and well- being of the region’s communities.
Bicycling also provides an active, environmentally-friendly mode of travel. As with motor vehicle travel, without proper education on the rules of the road for both bicyclists and drivers there is an increased risk of death and injury. Expanding education and safety training and programs for safe cycling skills is fundamental.
As a large portion of the population continues to age, and the younger generation continues to demand better public transportation, the need for safer access to transit will increase. Improving the safety and convenience of park and ride lots, pedestrian facilities and bicycle infrastructure are an important part of improving access to transit stops. Specific steps taken by transit providers and operators in the region to address safety include the development of an emergency preparedness plan, raising awareness about highway and rail at-grade crossings, and tracking incidents.
An effective way to introduce design changes is to begin with pilot projects that include “before and after” studies that focus on safety improvements, such as installing roundabouts instead of signalized intersections, or implementing road diets (the removal of traffic lanes often for the purpose of improving safety and adding other amenities such as wider sidewalks, bike lanes and/or center turning lanes). Conducting “before and after” studies will show the benefits of these types of road design changes to the transportation system.
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According to the summary report, Evaluation for Lane Reduction Road Diet Measures on Crashes (2010) by the Federal Highway Administration, a road diet application can provide a 29 percent reduction in crashes. There are many studies that provide guidelines on when and where road diets are best applied.
Implementing Complete Streets principles as part of local policy and design standards is one example of how the region can support the development of multi-modal facilities that are safe for all users. Complete streets can be required with new infrastructure and also when redevelopment or pavement resurfacing projects occur. Designing streets with a safety first approach by emphasizing elements such as appropriate speeds, sight distances, and curve radii is essential. A Complete Streets ordinance was passed by the Albuquerque City Council in January 2015.
Long Range Transportation Systems Guide
MRMPO has produced a Long Range Transportation System Guide to provide direction on appropriate roadway design given the surrounding context. LRTS incorporates guidance from several national best practices guidance documents including Designing Walkable Urban Thoroughfares: A Context Sensitive Approach (Institute of Transportation Engineers, 2010). The ITE’s recommended practice document provides guidance on the planning and design of major urban thoroughfares for walkable communities based on context sensitive solutions (CSS). CSS is essentially a different way to approach the planning and design of transportation projects that balance the competing needs of many stakeholders by offering flexibility in the application of design controls, guidelines and standards to design a facility that is safe for all users regardless of the mode of their travel. LRTS is a resource that provides potential countermeasure techniques that may be adopted to address any adverse safety effects in the upcoming years. Recommendations are grounded in the latest research of best practices, but are adapted to the AMPA’s unique context.
Road Safety Audits and an Example from West Central Ave
With assistance from the Federal Highway Administration, MRCOG and member agencies performed a road safety audit (RSA) in March 2013 on West Central Avenue. The difference between a traditional safety review and road safety audit are provided in Table 3-17. The reason this assessment was done is because the FHWA has identified Albuquerque as a “Pedestrian Safety Focus City” based on pedestrian fatality rates that are well above the national average. In an effort to reverse this trend, FHWA provides free training and technical assistance. MRCOG and member agencies identified the West Central Avenue corridor between Coors Boulevard and Sunset Drive as a good candidate for a road safety audit. The process and results are worth mentioning here because duplicating the road safety audit practices learned on Central Avenue on other corridors and intersections is an important part of improving safety in the region.
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Table 3-17: Comparing Road Safety Audits and Traditional Safety Reviews
Road Safety Audit Traditional Safety Review
Performed by a team independent of the The safety review team is usually not project completely independent of the design team.
Typically performed by a team with only Performed by a multi-disciplinary team design and/or safety expertise.
Considers all potential road users Often concentrates on motorized traffic.
Accounting for road user capabilities and Safety Reviews do not normally consider limitations is an essential element of an RSA human factor issues.
Always generates a formal RSA report Often does not generate a formal report.
A formal response report is an essential Often does not generate a formal response element of an RSA report.
The Road Safety Audit team included participants from NMDOT, Bernalillo County, Albuquerque Police Department, City of Albuquerque, Parks and Recreation, and bicycle and health advocates. The recommendations were identified through thorough crash data analysis and field observations. The final recommendations were for all road users.
Following is a list of safety issues identified along the corridor:
• Midblock crossings • Pedestrian crossings at intersections (with particular focus on intersections at Coors Blvd and at Atrisco Dr) • Bicyclist infrastructure and bicyclists riding against traffic (with particular infrastructure focus on intersections at Coors Blvd and at Atrisco Dr, Yucca Dr and Old Coors Rd and the missing bicycle lanes on the segment of Central Ave between Atrisco Dr and Sunset Rd) • Transit stop locations and transit rider crossings • Access management • Accessibility • Lighting/visibility
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Following is a list of improvements and countermeasures recommended along the corridor:
• Undertaking education and enforcement initiatives targeting pedestrians (including transit users), bicyclists, and motorists • Increasing and prioritizing the number of marked crossings • Providing median refuges at marked and unmarked crosswalks • Improving and/or extending bicycle facilities and bicycle signage • Optimizing signal phasing for all users • Redesigning intersections to reduce corner radii • Modifying bus stop locations • Improving sidewalk landing areas at corners, installing or realigning accessible ramps, relocating traffic signal push buttons, and removing sidewalk obstructions to improve accessibility • Conducting an access management study • Increasing lighting throughout the corridor • Installing median fencing to discourage midblock crossings at select locations
An excerpt from the West Central Ave Road Safety Audit Report:
The portion of West Central Ave studied had 35 reported crashes involving pedestrians or bicyclists over the four year period between 2008 and 2011, with 19 of the crashes involving pedestrians and 16 involving bicyclists. Crash data indicate that 27 of the 35 (77 percent) crashes resulted in injury. Mid-block crossing – particularly in the vicinity of Coors Blvd and Central Ave, in which pedestrians crossed at locations away from intersections and without a marked crosswalk – were identified as a contributing factor in a majority of pedestrian crashes. Of the 19 pedestrian crashes between 2008 and 2011, 14 involved midblock crossings. Based on reported crashes and observations, there appears to be a correlation between mid-block crossings, pedestrian crashes and the location of transit stops.
Bicycling against traffic also was identified as a contributing factor for bicycle crashes. Nearly half of the bicycle crash (43 percent) involved the cyclist riding against traffic. This was particularly valuable information since a review of crash reports was needed to identify these types of crashes. There were a couple of general factors that would not have been discovered without the review of crash reports: many of the pedestrian crashes involve transit riders and many of bicycle crashes involve cyclists riding against traffic.
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3.6.4 Scenario Analysis of Crash Rates
Crashes can be considered as discrete events that take place in the roadway network. As part of its scenario analysis, MRMPO attempted to forecast changes of total and severe crashes rates for the different growth scenarios. Crash rates were forecasted based on projected land use characteristics. Data analysis subzones (DASZs) were used as the units of analysis to make the modeling effort as consistent as possible with other MTP forecasts.
For both total and severe crashes, the total number of signalized intersections, population count, and employment types (basic, retail, and service) were found to be positively associated, meaning that as the number of each goes up, so do crash rates (per DASZ). By contrast, the number of single family dwelling units was negatively associated with total and severe crashes, meaning that increased rates of single family dwelling units are associated with lower crash rates (per DASZ).
When considering the percent increase of crashes over the planning horizon, the Trend Scenario was found to be safer for both total and severe crash types. According to the various models, the total number of crashes in the Trend Scenario may increase by 26 to 44 percent by 2040, while the number of crashes in the Preferred Scenario may increase from 27 to 60 percent. These findings are consistent with the greater increase in multi-family housing and concentrated employment in the Preferred Scenario than the Trend.
Figure 3-44: Percent Increase in Crashes by Type for Trend and Preferred Scenarios by Modeling Approach41
Total Crashes Trend Preferred Severe Crashes Trend Preferred Negative Binomial Model 37% 45% Negative Binomial Model 34% 42% Spatial Bayesian Model 26% 27% Spatial Bayesian Model 21% 23% Non-spatial Bayesian Non-spatial Bayesian 44% 60% 35% 48% Model Model
To further investigate the impacts on crash rates in the future scenarios, analysis was also conducted on a county-specific level. The forecasts for Bernalillo County were similar to the overall safety forecast. This is not surprising since the majority of crashes in the region occur in Bernalillo County. However, conditions in the Preferred Scenario are safer in Sandoval County for both total and severe crashes. Although severe crashes in Sandoval County did not increase at the same rate as the total regional crash rate, the County still experienced considerably higher percentages of severe crashes compared to neighboring Bernalillo County.
41 Since the comparisons are performed based on five-year intervals, the percent increases reflect the change from the average number of crashes for 2006-2010 to the average crashes for 2036-2040.
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Figure 3-45: Percent Increase in Crashes by Type for 2040 in Bernalillo and Sandoval Counties using the Spatial Bayesian Model
Total Crashes Trend Preferred Severe Crashes Trend Preferred Bernalillo County 22% 25% Bernalillo County 18% 21% Sandoval County 54% 46% Sandoval County 41% 35%
Safety Countermeasures
The results indicate that for both the Trend and Preferred Scenarios the safety of traffic deteriorates for the forecasted years. However, the Preferred Scenario seems to cause the worse conditions of the two. While analysis of crashes reflects “one slice of the pie,” it is important to have a system-wide perspective of these scenarios and how they would interact with the transportation network. Some of the inherent properties in the Preferred Scenario include mixed land uses, a range of housing products and living closer to work, higher transit usage, emphasizing development in major activity centers and transit nodes, and creating compact and walkable centers. To accommodate these land use changes and to encourage individual behaviors to be directed in the above mentioned ways, a compatible transportation network must be developed. In other words, the transportation network must meet the needs of a more urban environment and a range of transportation users (i.e., not just motorists). However, the 2040 transportation network does not include the design changes that would be required to complement the Preferred Scenario. Therefore these findings must be considered proactively when implementing the principles of the Preferred Scenario in the region.
Lee et al. (2013) reported that walkable neighborhood-scale planning and design interventions that seek to improve walkability can unintentionally increase overall exposure to traffic hazards. They highlight the micro-scale designs (e.g., better pedestrian crossings) and speed regulations at activity centers, which may often be hot spots for crashes, as countermeasures needed to complement neighborhood- level planning strategies. The result would be improved walkability and pedestrian safety simultaneously. Dumbaugh and Li (2011) found that pedestrian-scale retail usage is associated with significant reductions in crashes involving multiple vehicles, parked cars, fixed objects, and pedestrians. They attribute lower speeds, which is common in pedestrian-oriented retail areas, to this reduction. An important finding from their study was that the majority of driver error in urban environments does not appear to be random; rather, the characteristics of the built environment plays a significant role in producing the error, generally worsening safety conditions and increasing the propensity of crashes.
To summarize, it would be unrealistic and inappropriate to rank scenarios solely based on future crash propensity, although the crash analyses provide important findings and reflect the need to proactively plan for a transportation system that offsets safety risks. Ultimately, all the components of a Metropolitan Transportation Plan should complement each other to ensure an enhanced, safe, and accommodating multi-modal transportation network. Implementing the Preferred Scenario is therefore about more than achieving the right land use mixes; it is also about providing safe transportation infrastructure and making the right investments in the right locations.
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3.7 Transportation and Security
Going beyond safety, transportation security includes preparations and In a Nutshell… plans to prevent, manage, and respond to potential regional threats that would require an emergency response. Federal regulations require Takeaways: Transportation that the MTP includes a transportation security element that security planning is the product incorporates emergency relief disaster plans as well as strategies and of coordination between local, policies that support homeland security and safeguard the personal state, and federal agencies. The security of all motorized and non-motorized users. Although special key to security planning is attention needs to be paid specifically to transportation security allowing for adaptive responses concerns, it is overwhelmingly the case that measures to improve the to ensure the resiliency of the general performance of the regional transportation system, such as transportation system during those stated in the 2040 MTP goals and objectives, are complementary emergency events. if not exactly the same as those needed to improve the performance of Components: This section the region during an emergency situation. For example, maintaining explains regional security existing infrastructure, expanding multi-modal transportation options, concerns, how transportation preparing for climate uncertainties, improving access to key sites, and plays a role in emergency encouraging a mix of land uses in appropriate locations, are all situations, and how aspects of strategies that improve transportation security while also fitting within the transportation system can be the stated 2040 MTP goals and objectives. improved for resiliency and Several stakeholders at the state and federal levels are involved in better performance during an transportation security issues. The New Mexico Federal Executive emergency. The improvements Board serves as the hub for coordination between federal agencies, named in this section can create improving continuity of government operations and providing timely a more resilient and adaptive and accurate information during an emergency. The New Mexico transportation system during an Department of Homeland Security and Emergency Management emergency, be it caused by (DHSEM) leads the state in preparing for, preventing, responding to, nature, technical failure, human and recovering from emergency events that may occur, regardless of accident, or intention. cause. The DHSEM maintains the state’s emergency operations plan, Goals and Objectives: Strategies which focuses on emergency situations in the case that local to improve the transportation communities need state or federal assistance. MRMPO coordinates as system performance in an appropriate with other state departments concerned with various emergency situation support the aspects of transportation security including the New Mexico 2040 MTP goals of Mobility by Department of Health and the New Mexico Energy, Minerals and maintaining existing Natural Resources Department. infrastructure and expanding Other local stakeholders focus on issues of security and emergency transportation options and response. The Environmental Protection Agency requires that Local Economic Vitality by supporting Emergency Management Committees develop an emergency response freight and the movement of plan and track the storage and transport of hazardous chemicals for goods. designated local emergency planning districts. In New Mexico, each
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county is an emergency planning district with its own Local Emergency Planning Committee (LEPC). The Office of Emergency Management (OEM) also maintains a local emergency operations plan. MRMPO coordinates with these respective agencies as appropriate.
3.7.1 Regional Security Concerns and the Transportation System
All emergency operations plans in the region, whether at the municipal, county, or state level, follow an all-hazards approach to emergency preparedness, meaning that preparations are made for all types of threats be they caused by nature, technical failure, human accident, or human intention. Hazards commonly identified in existing plans as well as recent correspondence with stakeholders include:
• Natural events such as drought, wildfire, flooding, high winds, or severe winter weather • Release of hazardous material • Nuclear incident • Utility outage • Energy or fuel shortage • Pipeline accident • Disease outbreak • Terrorist attack • Civil disturbance/mass gathering with imminent threats of violence
The transportation system has a unique connection to the threat posed by the possible release of hazardous material. In most aspects of security in the region, the transportation system serves to alleviate harm caused by an emergency event (discussed in the next section). However, hazardous material is also transported through the region daily. In effect this makes certain parts of the transportation network, namely routes for transporting hazardous material, potential threats to the region. In order to address this issue, the recent Bernalillo County Hazardous Materials Flow Commodity Study details how and where hazardous materials are being transported and stored in the county as well as emergency preparedness recommendations.
Transportation System Performance in Emergency Operations
The region’s transportation system would play a central role in responding to a security incident or natural disaster in the area. In an emergency situation a well-functioning transportation system is needed for transporting responders and resources, accessing affected areas and critical services such as hospitals and shelters, serving as evacuation routes, and transporting debris to disposal sites. Moreover, in such an emergency event it is likely that the typical functioning of the transportation system would be altered in some way. The transportation system could be affected directly and indirectly. Critical components of the region’s transportation infrastructure could be damaged, altering the performance of the system and possibly taking away important access points. Even if there is no direct damage to transportation infrastructure, an emergency situation could create atypical transportation patterns that
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overwhelm the carrying capacity of critical roadways or otherwise compromise the functionality of the transportation system.
One important role the transportation system may play in an emergency situation is in the movement or evacuation of large numbers of people from affected parts of the region. In the case that large populations would need to be evacuated outside the region, state and local emergency operations plans identify Interstate 25, Interstate 40, US Highway 550, US Highway 60, and US Highway 380 as roads used for primary evacuation routes. State and local plans also expect that the majority of evacuations will take place via personal vehicles and that those without access to private vehicles will be serviced by bus, which would involve local transportation agencies gathering residents into specific sites, from where they would depart to outside the region. The state’s All-Hazards Emergency Operations Plan estimates that the metro area could be evacuated in a 48-hour timeframe.
There are many local stakeholders who are concerned about the lack of alternative routes within and leading out of the region, as well as the limited access points to these routes. It would be an exceedingly rare and extreme event that would require a full evacuation of the region, and the ability to address this issue is limited by the region’s topography. During an emergency event it is more plausible that an evacuation would be required only for specific areas of the region. Improving the ability to respond to these kinds of situations is most easily addressed through the design and layout of internal roadways rather than roadways leading out of the region. While an emergency situation might require moving residents away from affected areas, it will also require the movement of responders and resources to affected areas. Stakeholders are concerned that the layout of road networks in certain neighborhoods in the region makes them more vulnerable. In these neighborhoods, too few roadways and lack of connectivity provide insufficient points of access should there be a need for large numbers of vehicles to simultaneously enter and exit communities. This setup could exacerbate transportation challenges during an emergency.
The transportation system will not be able to serve emergency operations if there is insufficient fuel for vehicles. This makes the threat of an energy shortage particularly difficult to address when it comes to transportation, especially if the energy shortage affects fuel supply. Currently the region depends heavily on petroleum, and as of 2012, there were no formal plans in the region to deal with a disruption in fuel supply. Under “informal” policies, the 2012 Energy Assurance Plan, written for the State of New Mexico Energy, Minerals and Natural Resources Department, states that the City of Albuquerque would be able to operate for two to three weeks in the event of a fuel disruption.42 This is concerning to stakeholders who fear that a fuel shortage would not only cause a region-wide emergency but would also cripple the abilities of emergency management operations.
42 Burcham and Associates, “State of New Mexico Energy Assurance Plan,” Prepared for the State of New Mexico, Energy and Minerals Department, 2012, p 63
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Improving Transportation System Performance for Security
Because different types of incidents would require different responses, it is impossible to have a specific plan for every type of event. It is for this reason that emergency operations plans in the region, keeping with an all-hazards approach, focus primarily on establishing a framework for coordinating responsibilities among various departments and agencies as well as how to assemble and mobilize responders. Plans focusing on these more organizational elements of an emergency response allow for more flexibility and adaptability to unknown and changing circumstances.
Upon review of these emergency planning documents, and recent correspondence with local and state security focused departments, groups, and committees, MRMPO finds that the best way to address transportation concerns under an all-hazards approach to security planning is to improve transportation system resiliency and flexibility. Following are general aspects of the region’s transportation system that are key to maintaining resiliency and flexibility in the wake of an emergency situation. Efforts to improve regional transportation security should focus on these aspects.
• Increasing connectivity: Increasing the connectivity of roadways, including local streets, would improve the performance of the transportation system in an emergency by permitting better access to and from affected or otherwise important sites, as well as increasing the possibility of alternative routes for evacuations. • Promoting alternative fuels: The loss of a gasoline and/or diesel fuel supply within a community could be devastating during an emergency event, debilitating first responders and others. Diversifying fuels is a preparedness strategy that should be implemented prior to, and during, an emergency event. By diversifying the types of fuel used within the community, not all fleets will be impacted by a specific fuel outage. Possible alternative fuel options include natural gas, electric, hybrid, propane, and biodiesel. • Promoting alternative modes of transportation: Alternative modes provide more options for moving people in and around the region both at the onset of an emergency event as well as during the recovery phase. In New York City after the terrorist attack of 9/11, the redundancy of the transportation system — that is, the options available from roadway, transit, and pedestrian pathways — enabled residents to continue to move throughout the city.43 Additionally, transit can be run on alternative fuels and generally requires less fuel on a per person basis. Therefore increasing transit capabilities in the region would provide flexibility in the event of a fuel shortage. • Promoting a mix of land uses and complete neighborhoods: An emergency event may create challenges with distributing key resources and services to residents as well as communicating information. Areas that have well-defined and accessible civic and public places, such as schools, neighborhood centers, and commercial districts, make it easier to coordinate these aspects of emergency operations. These places put immediate resources nearer to residences and provide nodes for distribution of resources, information, or medical countermeasure procedures.
43 Dornan, D. L., Maier P.M. “Incorporating security into the transportation planning process.” NCHRP report 525: Volume 3, 2005
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• Maintaining a state of good repair: Keeping roadways in a state of good repair is needed to ensure that infrastructure can handle extreme events and evacuation needs during and emergency situation. • Increasing Intelligent Transportation Systems and traveler information services: ITS can be used to collect and analyze real-time roadway conditions during an emergency. Traveler information services are important for ensuring communication with the traveling public about roadway conditions and alternative routes that may be utilized.
3.7.2 Emergency Operations and Preparedness Planning Opportunities
Emergency Operations Plans in the region have a tiered approach to responding to emergency situations depending on the magnitude of the event. If the first responders are overwhelmed they may call for the activation of the local Emergency Operations Center which coordinates additional resources and may even request assistance from neighboring jurisdictions. In the case that local emergency operations are overwhelmed, the State of New Mexico Emergency Operations Center can be activated. In extreme cases, help from the federal government can be requested. The State Emergency Operations Plan calls on the New Mexico Department of Transportation to be a supporting agency. While MRMPO is not named specifically in these plans, the data and tools available through MRMPO could be valuable resources in emergency preparedness planning.
Additional security planning efforts in the region could involve the following:
• A transportation security working group or committee comprised of local and state stakeholders to review transportation security issues of regional concern. • Use of existing modeling tools to study roadway performance under security scenarios. For example, the MRMPO travel demand model could be utilized to assess the impacts and consequences if critical pieces of the transportation system are altered, such as a closed bridge crossing. Studies such as this might show more specifically the detriments and benefits of certain network characteristics, such as connectivity and redundancy. • Implement greater infrastructure for alternative fuels. Some early efforts are taking place around the region, including PNM’s installation of a growing number of electric vehicle charging stations. Similarly, the Land of Enchantment Clean Cities (New Mexico) Coalition is a government-industry partnership sponsored by the U.S. Department of Energy’s Vehicle Technologies Program that supports expanded use of alternative fuels and technologies.
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3.8 Public Health
Accommodating active modes of transportation is a crucial ingredient for a healthy community. A sedentary lifestyle has been consistently In a Nutshell… cited as a major contributing factor for obesity and related diseases such as heart disease and high blood pressure. It has been estimated Takeaways: Active transportation that obesity and its related health problems rival tobacco use in systems and roadway connectivity negative health impacts.44 While there is substantial evidence that can help address regional health sedentary lifestyles negatively impact mental and physical health, it is issues related to physical inactivity. now a widely accepted fact that physical activity positively affects The 2040 MTP encourages agencies health. A moderate amount of physical activity is associated with a to take a more “holistic” approach reduction in mortality, depression, and reduced frequency of by including health in the dementia. These issues are relevant to transportation and land use transportation planning processes. planners because a person can meet their daily physical activity needs Components: This section by using active modes of transportation such as bicycling, walking, and explains how local and national even taking transit.45 46 Since a majority of trips happen within walking health challenges are related to or cycling distance from the trip’s origin, providing safe and inviting transportation planning, conditions to encourage the use of active modes for these trips is an investigates transit access to important strategy for improving a community’s health. hospitals in the region, and Moreover, there is a growing understanding of the connection names future strategies for between the use of active transportation modes and positive health collaborating with the field of outcomes. One study found that “each additional hour spent in a car public health. per day was associated with a 6 percent increase in the likelihood of Goals and Objectives: The obesity,” and that the inverse is true for public transit users due to the consideration of public health in fact that transit users walk to and from transit stops.47 Figure 3-46 transportation planning and the shows the inverse relationship between the percentage of workers strategies appropriate for who commute by biking or walking and the percentage of people improving health outcomes diagnosed with diabetes. There are other benefits when applying through active transportation are physical activity to transportation; in particular, switching from driving consistent with the 2040 MTP to more active modes can measurably reduce emissions and improve goal of promoting Active Places. air quality.48
44 Simcoe Muskoka District Health Unit, “The Impact of the Built Environment on the Health of the Population: A Review of the Review Literature,” 2007 45 Killingsworth, R., De Nazelle, A., & Bell, “Building a new paradigm, improving public health through transportation,” Ite Journal-Institute of Transportation Engineers 46 Dill, J., “Bicycling for Transportation and Health: The Role of Infrastructure.” Journal of Public Health Policy, 2009 47 Frank, L. D., & Kavage, S., “Urban planning and public health: a story of separation and reconnection.” Journal of Public Health Management and Practice, 2008, p. 214 48 Litman, T., “Transportation and Public Health.” Annual Review of Public Health, 2013
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Figure 3-46: Percentage of People Diagnosed with Diabetes and Percentage of Workers who Bicycle or Walk to Work by State49
14 12 10 8 6 4 2 0 Ohio Iowa Utah Texas Idaho Maine Illinois Alaska Hawaii Kansas Florida Indiana Oregon Virginia Nevada Arizona Georgia Missouri Alabama Vermont Arkansas Colorado Montana Kentucky Michigan Louisiana Nebraska Delaware California Maryland Wyoming New York Wisconsin Oklahoma Tennessee Minnesota Mississippi New Jersey New Connecticut Washington New Mexico New Rhode Island Pennsylvania West Virginia South Dakota North Dakota North South Carolina North Carolina Massachusetts New Hampshire
Percent Walk or Bike to Work Diagnosed with Diabetes Linear (Diagnosed with Diabetes)
An active transportation system is more than sidewalks, bike lanes, and transit services; it is also affected by the layout and design of the broader roadway networks, which alone can have significant impacts on health outcomes. One study found that “more compact and connected street networks with fewer lanes on the major roads are correlated with reduced rates of obesity, diabetes, high blood pressure, and heart disease among residents,” even when controlling for food environment, land uses, commuting time, socio-economic status, and street design.50
It is important to note that the collaboration between public health and planning professionals is nothing new. In fact, the fields have shared beginnings. In the early 20th century, the emerging field of planning sought to address public health through land use zoning to separate harmful uses from residential uses. But the two fields diverged later in the century as the planning field’s primary purpose became less about protecting health and more about other issues such as economic development, urban design and revitalization, and transportation. Yet the fields of planning and public health are coming back together, increasingly converging to address significant public health challenges related to the built environment, as the connection between the built environment and health are becoming better understood and documented through research and studies.
Today, transportation planners find themselves as part of a wider community of health promoters and are responding by increasingly incorporating public health more thoroughly into planning processes. MRMPO recognizes the importance of the convergence of the public health and planning fields at the national and local levels and that the formation of partnerships will be key in addressing significant health challenges. It is now understood that transportation issues are not merely connected to pressing
49 CDC BRFSS, 2011 50 Marshall, W. E., Piatkowski, D. P., & Garrick, N.W., “Community design, street networks, and public health.” Journal of Transport & Health, 2014
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health concerns, but that transportation planning will be a key strategy in addressing these concerns in their totality.
Thus MRMPO encourages projects and programs that support active modes of transportation and active places. This includes not only addressing the safety and connectivity of the transportation system in order to make walking, biking, and transit more viable, but also promoting land use and urban design decisions required to make such active modes of transportation more attractive. Recognizing the role of transportation in addressing health challenges in the region, the Futures 2040 MTP includes as one of its four goals (see Chapter 1) the promotion of active places, which are places where active transportation options, such as walking, bicycling and taking transit, are accessible, viable and attractive choices.
3.8.1 Local Public Health Challenges
Many have named obesity a national epidemic. In 2002, a study estimated that obesity was responsible for over nine percent of total health care spending in the United States.51 By and large New Mexico has followed the national trend of a dramatic rise in obesity rates. The state’s 2010 adult obesity rate was 25.6 percent, more than double the rate in 1990.52 While a recent report found that obesity rates are beginning to stabilize in New Mexico, there is still much more that needs to be done to bring the rates down to acceptable levels.53 Currently, in New Mexico only 52.2 percent of adults and 26.3 percent of youth are meeting aerobic exercise guidelines (150 minutes a week), and more than a quarter of adults are getting “little to no leisure time physical activity.”54
The Futures 2040 MTP builds on public health issues raised in past MTPs. As part of the scenario planning process, regional challenges were identified through an extensive outreach process that also included a focus group formed specifically of public health professionals to gather their opinions on challenges faced in the region. Among the challenges identified through the outreach process which relate to health, the following were named and are grouped by common theme:
• Multi-modal safety improvements: improve streets so that they are safe and convenient for walking, bicycling and public transit; the need for healthy alternatives to automobile travel; more transit options and multi-modal access; poor and unsafe bicycle networks/sidewalks; lack of sidewalks and gaps in walking paths; street crossing issues • Improved access to health facilities ensure adequate transportation options to medical facilities, particularly for seniors and for those in rural areas
51 Finkelstein, E. A., Fiebelkorn, I. C., Wang G. “National medical spending attributable to overweight and obesity: how much, and who’s paying?” Health Affairs Web Exclusive. 2003 52 New Mexico Department of Health, Chronic Disease Prevention and Control Bureau, “Complete indicator profile of obesity: adult prevalence,” 2013 53 New Mexico Department of Health, Public Relations, “Exercise shouldn’t be a chore.” Healthy Living, 2014 54 New Mexico Department of Health, Public Relations. “Half of New Mexico adults meeting aerobic exercise guidelines,” Healthy Living. 2014
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• Aging population livability and issues: address the transportation challenges of an aging population
Another health-related challenge that was raised through public outreach efforts was the issue of health inequity in the AMPA. The CDC defines health inequity as “a difference or disparity in health outcomes that is systematic, avoidable, and unjust.”55 Health disparities are often analyzed by categories of race, ethnicity, and income, and health inequities clearly exist by these groupings in the region (for more on how MRMPO and the region address transportation-related disparities for low-income and minority populations, see the Environmental Justice section of this document in Chapter 3.10). As transportation is geographic in nature, analyzing geographic disparities in health may be most appropriate for determining how transportation planning can address related health issues. When mapped, data from the New Mexico Department of Health Bureau of Vital Records shows clear disparities in the geographic distribution of the mortality from chronic diseases such as cardiovascular disease (see Map 3-31). While there are many factors at play, this gives some idea of which communities might be most impacted by improving active transportation options. MRMPO is set to further investigate the issues of health disparities in the region by partnering with Presbyterian Health Care Services and the Bernalillo County Community Health Council in the Centers for Disease Control’s Racial and Ethnic Approaches to Community Health (REACH) initiative, which will address risk factors of poor nutrition, physical inactivity, and prevention, access to health care, and disease management related to chronic disease.
55 Centers for Disease Control and Prevention. “Social determinants of health.” Retrieved Mon, 08 December 2014 from Web site: http://www.cdc.gov/socialdeterminants/Definitions.html
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Map 3-31: Distribution of Cardiovascular Disease Mortality in the AMPA, 1999-2011
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3.8.2 Accessibility to Health-Related Sites and Facilities
An important intersection between public health and transportation planning is the issue of accessibility of locations and services that are critical for maintaining health. As previously mentioned, the challenge of reaching medical appointments and clinics was raised as an issue by the public, especially for those living in rural areas and for those who are transit-dependent.
In order to investigate this issue further MRMPO analyzed accessibility to health services by mapping transit travel time contours from term hospitals in the region. Short-term hospitals are those where patients receive short-term care for acute illness or injury, or recovery from surgery. All of these facilities provide Medicare services. Socio-demographic information was also incorporated to analyze access for those more likely to need transit service: seniors (over age 65), families in poverty, and occupied housing units without a car. MRMPO conducted this analysis by using its Transportation Accessibility Model (TRAM). For more on the TRAM methodology see section 3.13 on Livable Communities. An important consideration is that this analysis assumes all the mapped hospitals are available to the transit user. This needs to be considered when viewing the results because many in the region have limited hospital choices depending on their health care provider. Despite this limitation, the analysis gives a reasonable view of general accessibility patterns in the region.
The TRAM analysis shows that the best transit access to hospitals in the region is on Albuquerque’s Eastside, particularly along and in between the Central Avenue and Montgomery Blvd corridors, as well as areas near northern I-25 (see Map 3-32). Areas near the Bernalillo and Sandoval County line have the best access on the Westside, and to a lesser degree areas along Coors Blvd north of I-40. In Valencia County, the best access is found in the City of Belen.
Using socio-demographic data to gather travel contour statistics allows for comparison of access between certain segments of the population and the region as a whole. The graph seen in Figure 3-47 shows that there is little difference in transit access to hospitals for residents who are over 65 compared to the total population in the AMPA. However, a higher percentage of families in poverty live within the transit contours compared to total families in the region. Likewise, the contour statistics show that occupied housing units with no vehicle or only one vehicle have better access than total occupied housing units in the region, meaning that populations most likely to depend on public transit are better served in terms of access to medical facilities. These findings are consistent with studies showing relatively good access to transit among seniors and low-income residents in the AMPA (see the section on Transit User Characteristics in Chapter 3.4).
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Map 3-32: Transit Access to Short-Term Hospitals
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Figure 3-47: Transit Access to Short-Term Hospitals56 (2012 ACS 5-Year Estimates)
100% Outside 45 Min Interval, not in an Urbanized Area 90% Outside 45 Min 80% Interval, in Los Lunas Urbanized 70% Area* Outside 45 Min Interval, in 60% Albuquerque Urbanized Area* 50% Within 30-45 Min Transit Travel 40% Time Interval Within 15-30 Min 30% Transit Travel Time Interval 20% Within 0-15 Min 10% Transit Travel Time Interval 0% *Defined by the 2010 Decenial Census Total Population Total Occupied Occupied Total Families in Population 65 and Occupied HUs with 1 HUs with Families Poverty older HUs Vehicle No Vehicle
In this first iteration of analysis, the accessibility is presented for informational purposes only, and to provide an example of how regional transportation analysis can contribute to public health studies in the future. Going forward, this research may help to inform decisions in the region regarding topics such as transit service improvements, hospital site selection, and senior care facility site selection, among others. Access can be further studied by mapping other kinds of health services such as clinics or sites that offer specific procedures. TRAM analysis may also be used in the future to analyze access to other critical resources to health, such as access to grocery stores and access to recreational opportunities like parks and trails, as well as access to schools since walking and bicycling to school are healthy behaviors to promote in light of childhood obesity rates. MRMPO may eventually use these accessibility considerations to influence the types of projects which are selected to receive funding through the Transportation Improvement Program’s Project Prioritization Process or they may be integrated into the planning process through other mechanisms.
56 Socio-demographic data from American Community Survey, 2008-2012 5-Year Estimate.
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3.8.3 Strategies to Improve Public Health Outcomes through Transportation Planning
The Futures 2040 MTP establishes the connection between transportation conditions and health outcomes and identifies analytical tools to make more this connection more evident. Further integrating health considerations into regional planning will require a range of efforts, including: building coalitions with local public health professionals; collaboration between planning agencies and health organizations when funding opportunities become available from either field; improved technical analysis; and engaging and educating community members about issues related to public health and transportation.
Fortunately, a range of efforts are taking place across the Albuquerque metropolitan area that do take a more holistic approach to transportation planning. Following are a collection of ongoing efforts and potential strategies to improve public health outcomes through transportation planning.
Recent Public Health-Related Transportation Efforts
• Various Health Impact Assessments (HIAs) have taken place in the region • Albuquerque’s first open streets event, or “CiQlovia,” temporarily closed down two miles of city streets to promote issues of bicycling, walking, and public health • Bernalillo County has been awarded a Community Transformation Grant (CTG) by the Centers for Disease Control. The CTG is designed to help improve health, reduce health disparities, and control health care spending.
Near to Medium-Term Strategies
• Expand bicycle and pedestrian advisory groups and planning efforts to include an additional focus on health, collaboration with health professionals, and integration of health into transportation planning processes and products • Creation of a regional Travel Demand Management (TDM) program that would focus on TDM activities not covered by other agencies such as ridesharing, support for regional Safe Routes to School efforts, and active transportation-supportive events (e.g., open streets events) • Siting health clinic locations near transit service and improving public transit service to existing health clinic locations where possible • Improve transportation options between areas of need and major medical service sites • Utilize health indicators in transportation project evaluation • Update school siting policies to include access via active modes of transportation and community-centered school models that are easily accessible to surrounding neighborhoods. When possible, share tools, technical expertise, and existing datasets among public health agencies, advocacy groups, and land use and transportation planners and further collaborate to produce and process relevant datasets of interest to both fields
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3.9 Air Quality
Due to rising population and employment in the region, total vehicle miles traveled in the AMPA is expected to increase by 48 percent from Takeaways: Bernalillo County is 20,335,265 miles per day in the year 2012 to 30,105,932 miles per day currently in a limited maintenance by 2040. Such an increase in VMT leads directly to an increase in on- period for carbon monoxide. road vehicle emissions. These concerns are amplified by the possibility Although the AMPA is not in that ground level ozone concentrations may one day exceed newly violation of any other National proposed National Ambient Air Quality Standards (NAAQS). Ambient Air Quality Standards Consequently, the AMPA must find methods to substantially reduce (NAAQS), the County and parts of emissions and maintain healthy air quality into the future. It is the AMPA may fall into important to note that today the region has generally good air quality. nonattainment with ground level Ensuring this remains the case will be important for maintaining a high ozone standards in the coming quality of life as well as meeting federal funding requirements for years depending on how much transportation projects. the standards are lowered by the EPA. On-road vehicle emissions In order for transportation to continue to conform to federal and state are sources of both precursors air quality policies and standards, it will be important that (volatile organic compounds and transportation planning in the region carefully considers these oxides of nitrogen). forthcoming air quality concerns. In particular, agencies across the Nonattainment status can limit AMPA must consider the modes of transportation used, means of the types of transportation improving efficiency and reducing traffic delays, as well as land use investments that can be made in patterns, and how each of these can positively impact air quality. While the region. land use configurations that increase dependence on single-occupancy vehicles pose challenges for maintaining air quality in the region, they Components: This section can also serve as air quality mitigation strategies. Therefore, explains air quality monitoring transportation investments that complement smart growth strategies practices, State Implementation have the added benefit of addressing air quality issues and can help Plans, and the conformity avoid non-compliance with national air quality standards, as well as determination process. Current positively impact regional health issues. practices related to air quality and the distribution of federal funds are also discussed.
Goals and Objectives: Improving air quality is an objective that supports the MTP goal of Environmental Resiliency.
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3.9.1 Air Quality Monitoring
Air quality is monitored within Bernalillo County by the City of Albuquerque Environmental Health Department, Air Quality Program. For all other areas within the AMPA that are outside of Bernalillo County, air quality is monitored by the New Mexico Environment Department, Air Quality Bureau. Areas are designated as attainment or nonattainment according to whether they meet NAAQS for each criteria pollutant based on collected monitoring data. NAAQS are federal standards that establish an air quality concentration to protect public health and welfare. The NAAQS are set for six principal pollutants also known as criteria pollutants. In Albuquerque/Bernalillo County, all six criteria pollutants are monitored to ensure compliance with NAAQS. The six criteria pollutants are:
• Ozone (O3) • Nitrogen Dioxide (NO2) • Carbon Monoxide (CO) • Particulate Matter (PM2.5 & PM10) • Lead (Pb) • Sulfur Dioxide (S02)
Since Bernalillo County was found in violation of the carbon monoxide (CO) standard in the early 1990s, no subsequent violations of federal air quality standards for any of the six criteria pollutants regulated by the U.S. Environmental Protection Agency (EPA) have occurred within the AMPA. With respect to CO, the Joint City and County Air Quality Control Board adopted a State Implementation Plan (SIP) for reaching attainment that included several effective control strategies that have brought the area into compliance status. The plan has been a great success. Not only did the area reach attainment but in fact CO levels are now well below the standard.
Transportation Conformity and State Implementation Plans
Per the Clean Air Act, federally-supported transportation plans such as the MTP, transportation improvement programs (TIPs), and federal projects receiving federal funding in nonattainment areas must conform to SIPs for air quality and ensure that they will not inhibit progress toward attainment. The decision about whether a transportation plan, program, or federally-funded project meets these criteria rests with the City of Albuquerque Air Quality Program, the MPO, EPA, FHWA and FTA. This decision is referred to as a conformity determination. It is the affirmative written documentation declaring that the transportation plan conforms to the SIP’s purpose of eliminating or reducing the severity and number of violations of the NAAQS and achieving prompt attainment of such standards. This process currently takes place in the AMPA under the carbon monoxide Limited Maintenance Plan.
The conformity determination is made through a process called “interagency consultation,” which is prescribed in air quality regulation. It can require analysis to demonstrate that the total emissions projected for that plan or TIP are within the on-road mobile source emissions limits (also known as “budgets”) established in the appropriate SIP. The need to comply with the transportation conformity process means that if the AMPA and Bernalillo County remain in nonattainment (for CO, for example)
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after their SIP is in place, federal transportation dollars for general purpose lane additions to the roadway network could be jeopardized. There may also be additional pressure to reduce dependency on auto travel, and additional requirements stated under transportation conformity may be required to reduce mobile source emissions.
Upon the likely scenario that the federal ozone standard is be lowered, air quality agencies in consultation with partner MRMPO will need to develop a revised SIP to achieve needed levels of emissions reduction. Different pollution control measures may require consultation with and concurrence among appropriate levels of government. The New Mexico Department of Transportation, MPOs, air quality agencies, transit agencies, and local governing bodies cannot individually create or implement control measures. Therefore, the SIP will be considered a collaborative process to achieve desired air quality standards. The MTP and the TIP would then have to demonstrate conformity to the ozone SIP.
3.9.2 Pollutants in the Region
Carbon Monoxide
In the past, parts of the metro area exceeded the federal standard for CO. Through a collaborative process various agencies developed transportation control measures (TCMs) to achieve attainment with the carbon monoxide standard under an EPA-mandated maintenance plan. TCMs are specific programs designated to reduce emissions from transportation sources and are included in the approved SIP or maintenance plan. In 1996, Albuquerque and Bernalillo County were designated as a maintenance area. The 20-year interval for Bernalillo County to have this maintenance plan in place began in 1996 and runs through 2016. The initial mandated Maintenance Plan (which covered ten years) then transformed into a ten-year Limited Maintenance Plan which was proposed and accepted by the Air Quality Control Board (AQCB) and ultimately approved by the EPA when Albuquerque/Bernalillo County demonstrated monitored levels of carbon monoxide at less than 85 percent of the relevant NAAQS. Bernalillo County received local and federal approvals for its Limited Maintenance Plan in 2005-2006. Whereas previous conformity determinations relied on modeling, MRMPO must now comply with the Limited Maintenance Plan by demonstrating to the Federal Highway Administration and EPA that carbon monoxide levels remain within the levels called for in the plan (i.e., conformity determination).
Current CO levels are in fact well below allowable thresholds, and MRMPO is not required to conduct any further emissions analysis. The current design value57 for CO, based on the latest quality-assured data available at this time, is 1.6 parts per million (ppm) for the 8-hour CO NAAQS and 2.4 ppm for the 1- hour CO NAAQS.58 These values represent 18 percent and seven percent of the relevant standards,
57 “Design value” is a measurement of the ambient air concentration of a pollutant over time. This measurement must be approved by the EPA and must use EPA-approved monitoring methods. 58 These design values have been confirmed by the U.S. Environmental Protection Agency, as stated in a letter addressed to the FHWA Division Administrator and dated December 01, 2014
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respectively. Therefore, the design value for Albuquerque/Bernalillo County is well below the standard and in accordance with this criterion of the conformity rule. The EPA has confirmed the design values and all indications are that Bernalillo County will not exceed the CO thresholds in the near future.
Upcoming Ozone and Transportation Conformity Issues
The next concern on the horizon is ground level ozone. Ozone near the Earth’s surface is a type of pollutant not directly emitted, but instead produced by a complex chemical reaction between ozone precursors in the presence of sunlight and heat. Principal among the ozone precursors are volatile organic compounds (VOCs) such as raw fuel vapors and oxides of nitrogen (NOx) formed primarily during the combustion of fossil fuels. Therefore, the control of ozone formation is based on regulating emissions of volatile organic compounds and oxides of nitrogen. On-road vehicle emissions are sources of both precursors. Since ozone does not form immediately, and because heat and sunlight are actors in its creation, ozone can form miles away from the original source of its precursors and forms more readily during the hot summer months.
While the area is in attainment at this time, the EPA has proposed that the standard be lowered to a level that is more protective of public health, but that could result in Bernalillo County and other parts of the AMPA exceeding the standard. This would mean a nonattainment area designation, triggering the need for a SIP that delineates how the area proposes to reach attainment status. The nonattainment status and subsequent submittal of a SIP will have an impact on how federally-funded transportation projects in the region are evaluated with regard to conformity to the SIP. In the meantime, the region can take steps to minimize transportation-related emissions, including analyzing the air quality impacts of transportation projects.
The current EPA ozone standard is .075 ppm. On November 25, 2014, the EPA proposed to strengthen the NAAQS for ground-level ozone based on scientific evidence about ozone’s effects on human health. The proposed updates will improve public health protection, particularly for children, the elderly, and people of all ages who have lung diseases such as asthma. By court order as a result of litigation, the EPA must finalize the proposed standard by October 1, 2015. Following the establishment of a new standard, data will be collected and verified in order for the EPA to determine by October 1, 2017 whether the region will be designated as in attainment or non-attainment. An initial State Implementation Plan would then be due to EPA by October 1, 2018, with additional elements to the plan due by October of 2020 or 2021. According to the proposed EPA rule, the new standard will be in the range of .065 to .070 parts per million,59 which may place the area at 100 percent or more of the standard and therefore in nonattainment status. Figure 3-48 demonstrates ozone levels in Bernalillo County compared to the current NAAQS for ozone (it does not show the proposed new standard).
59 http://www.epa.gov/airquality/ozonepollution/pdfs/20141125proposal.pdf
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Figure 3-48: Ozone Levels in Bernalillo County as Compared to the National Ambient Air Quality Standards, 2001-2013
Source: City of Albuquerque, Environmental Health Department, Air Quality Program
3.9.3 Reducing Emissions: Current Strategies in Place
Congestion Mitigation Air Quality Funding
The Congestion Mitigation and Air Quality (CMAQ) program provides funds to regions for transportation projects designed to improve air quality and reduce traffic congestion in areas that do not meet NAAQS or in maintenance areas that have had previous air quality problems. CMAQ was created by transportation legislation in the early 1990s and has been reauthorized over the years to assist in transportation investments that reduce emissions. Because Bernalillo County is still classified as a Limited Maintenance area for CO, the County is eligible to receive CMAQ funding for air quality and congestion enhancements. CMAQ projects reduce motor vehicle emissions in three ways:
1. By encouraging changes in travel behavior that reduce vehicle miles traveled (VMT), such as shifts to ridesharing, transit, bicycling, or walking 2. By improving traffic flow, which reduces vehicle idling and stop-and–start driving conditions that are associated with higher levels of emissions 3. By implementing technologies to reduce the rate of emissions, such as conversion to alternative fuels for buses, or retrofits of diesel vehicles
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Projects being implemented must serve as alternatives to added roadway capacity and must mitigate air quality and congestion. Recently implemented projects in the region include new park and ride facilities, bicycle and pedestrian paths/programs, improved public transit and service expansion and traffic signalization improvements.
MRMPO must calculate the impact of transportation projects that receive CMAQ funds. CMAQ analysis involves both “on-model” and “off-model” methodologies using the MRMPO travel demand model, the Environmental Protection Agency’s MOVES air quality model, and MRMPO designed “off-model” calculations. These tools are essential tools for calculating emissions factors for various pollutants, vehicle miles traveled (VMT), and average trip lengths. The analysis also includes evaluation of annual emissions (kg/year) and cost effectiveness (annual value of reduction/kg) for three different types of pollutants: carbon monoxide (CO), nitrogen oxides (NOx), and volatile organic compounds (VOCs).
Project Prioritization Process
The Project Prioritization Process serves as an important tool for evaluating and incentivizing projects that address air quality. The air quality criterion measures the effects individual transportation projects have on the AMPA through the same rigorous model analysis used for CMAQ evaluation. Emissions factors with and without the projects as well as cost-benefit analyses are calculated. The PPP will help improve air quality by prioritizing projects that result in reduced VMT and reduced emissions. Presently, MRMPO and the AMPA are not required to perform project-level air quality analysis. The inclusion of an air quality criterion as a performance measure under the MTP’s environmental resiliency goal recognizes its importance and contribution to regional quality of life. The air quality criterion is therefore a proactive measure that prepares the region for future non-attainment status in ozone or other pollutants.
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3.10 Environmental Justice
Environmental justice refers to the “fair treatment and meaningful involvement of all people regardless of race, color, national origin, or In a Nutshell… income with respect to the development, implementation, and Takeaways: In transportation enforcement of environmental laws, regulations, and policies.” 60 In planning, environmental justice particular, environmental justice addresses how low-income and minority addresses how low-income and populations are affected by government actions, including transportation minority populations are decisions made as part of the metropolitan transportation planning affected by transportation process. The 2040 MTP plays an important role in environmental justice by decisions. MRMPO considers analyzing existing conditions and considering how transportation environmental justice primarily investments can improve access for low-income and historically through its Project marginalized communities. Prioritization Process and The three fundamental principles of environmental justice are: analyzing transit accessibility
• Avoid, minimize, or mitigate disproportionately high and adverse for those populations. human health and environmental effects, including social and Components: This section economic effects, on minority and low-income populations discusses how MRMPO • Ensure the full and fair participation by all potentially affected communities in the transportation decision-making process incorporates environmental justice considerations in its • Prevent the denial of, reduction in, or significant delay in the receipt of benefits by minority and low-income populations planning process. Important products include maps showing Environmental justice programs stem from Title VI of the Civil Rights Act of of environmental justice 1964, which prohibits discrimination on the basis of race, color or national communities (see page 3-161) origin and specifies that recipients of federal funds must certify around the region as well nondiscrimination. Environmental justice requirements were first issued in communities in relation to 1994 Presidential Executive Order 12898, which directed every federal proposed MTP projects (see agency to make environmental justice part of its mission by identifying page 3-164) in an effort to help and addressing all effects of programs, policies and activities on minority assess if investments are being and low income populations. In 1997, the U.S. Department of made in an equitable manner. Transportation expanded upon the requirements of the 1994 environmental justice Executive Order and clarified the role and Goals and Objectives: responsibilities for transportation decisions makers relating to Environmental justice environmental justice. In 1999, the Federal Highway Administration considerations address the (FHWA) and Federal Transit Administration (FTA) issued a memorandum Mobility goal and the objective providing guidance for implementing Title VI requirements in of expand[ing] transportation metropolitan and statewide transportation planning. options by supporting multimodal options in disadvantaged communities.
60 Environmental Protection Agency, http://www.epa.gov/environmentaljustice/
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Therefore the metropolitan transportation planning process must comply with both environmental justice and Title VI requirements. The federal requirements which MRMPO must follow include:
• Ensuring that the MTP and the TIP comply with Title VI of the Civil Rights Act • Identifying residential, employment, and transportation patterns of low-income and minority populations so that those populations’ needs can be identified and addressed and the benefits and burdens of transportation investments can be fairly distributed • Evaluating and improving MRMPO’s public involvement processes where necessary to eliminate participation barriers and to engage minority and low-income populations in transportation decision-making In addition to environmental justice and Title VI requirements, MRMPO must also comply with Executive Order 13166, which requires the organization to take reasonable steps to ensure that Limited English Proficient (LEP) persons have access to programs, services and information provided by MRMPO. Limited English Proficient persons are persons who do not speak English as their primary language and have a limited ability to read, speak, write, or understand English.
3.10.1 Environmental Justice Assessments
The 2040 MTP primarily addresses environmental justice by assessing where low-income and minority populations reside and how those populations are served by the transportation network, particularly the transit network, within the AMPA. MRMPO analyzed locations with relatively high concentrations of environmental justice populations based on minority status and household poverty level using 2009- 2013 American Community Survey data. Map 3-33 broadly shows the locations where there are a higher than average (compared to the regional mean) concentration of both household poverty and minority status; the darker the color, the greater the concentration of low-income and minority households. The results of the index analysis give an idea of where in the AMPA there might be environmental justice concerns. The highest concentrations in the AMPA are in areas within the City of Albuquerque including the Southeast Heights, the South Valley, and the Southwest Mesa.
While household income and minority status are the traditional measures of environmental justice, affordability is increasingly understood to be part of the transportation planning process. In recent years, federal agencies and research groups have placed an emphasis on analyzing combined housing and transportation costs.61 Such analysis reveals locations within the AMPA that, while not necessarily considered environmental justice communities, are subject to affordability concerns as median household income in many neighborhoods is insufficient to meet the housing and transportation costs in the area. For more on housing and transportation affordability, see the Livable Communities section in Chapter 3.13.
61 See the Department of Housing and Urban Development Location Affordability Index and the Housing and Transportation Affordability Index developed by the Center for Neighborhood Technologies.
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Map 3-33: Environmental Justice Populations in the AMPA, 2010
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Transit Accessibility
MRMPO’s Transportation Accessibility Model was used to assess whether environmental justice communities have greater or lesser access to public transportation than the AMPA as a whole. Transit accessibility is particularly important for low-income populations as it is a more economical form of travel and improves access to jobs and job opportunities and is often necessary for getting to work. The following table shows results from an analysis conducted using the 2012 roadway network and transit services and demographic data from the 2009-2013 American Community Survey in order to determine whether public transportation investments are being equitably distributed across the region. As the analysis shows, the region is doing a relatively good job providing environmental justice communities access to transit services, as compared to the general population. In particular, access to transit for households below the poverty level is greater than for all households in the AMPA. Nevertheless, it is important for future transit investments to consider factors such as income status. Additional transit services have been proposed along Bridge Blvd, while the Albuquerque Rapid Transit will have a major impact on improving overall mobility for large environmental justice communities.
Table 3-18: Accessibility of Transit for Populations in the AMPA, 2012
Accessibility of Transit for Populations in the AMPA, 2012 Minority Population AMPA Population Within 1/4 mile of transit Within 1/4 mile of transit service 23.9% 24.8% service Within 1/2-mile of transit Within 1/2-mile of transit service 53.0% 54.0% service Within 1/4-mile of high frequency Within 1/4-mile of high 2.1% 2.1% transit service frequency transit service Within 1/2-mile of high frequency Within 1/2-mile of high 9.3% 9.3% transit service frequency transit service Households Below Poverty Level AMPA Households Within 1/4-mile of transit Within 1/4-mile of transit service 31.4% 26.9% service Within 1/2-mile of transit Within 1/2-mile of transit service 62.3% 57.0% service Within 1/4-mile of high frequency Within 1/4-mile of high 3.6% 2.5% transit service frequency transit service Within 1/2-mile of high frequency Within 1/2-mile of high 11.8% 8.1% transit service frequency transit service
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3.10.2 Incorporating Environmental Justice Considerations into the Planning Process
Environmental justice considerations have been incorporated into important products used in regional transportation decision-making. These include the Project Prioritization Process, which helps prioritize which projects will be selected to receive federal funding, and the MTP Monitoring Report (see Appendix O), which tracks progress toward improving access to transit service in environmental justice communities compared to the AMPA at-large.
The Project Prioritization Process, which informs how projects are selected for inclusion in the TIP, uses environmental justice criteria as a scoring factor, awarding points to projects if they are located within or adjacent to identified environmental justice communities. Because a full environmental justice evaluation as part of the NEPA process is usually required to determine whether or not a federally- funded project has substantial adverse effects on a community, and because such an analysis cannot be performed during the Project Prioritization Process, the assumption is made that a project will benefit rather than burden the adjacent community. However, explanation of the project’s impacts to adjacent communities is also required.
For the 2040 MTP, a map was developed to show the location of roadway capacity expansion projects in relation to the environmental justice communities (see Map 3-34). Further analysis could be conducted by examining concentrations of elderly, children, seniors, the disabled and similar population groups that are subject to potential adverse impacts.
MRMPO Public Outreach
MRMPO offers opportunities to participate in the planning process in different locations across the AMPA to help ensure no geographic area is excluded from its public participation efforts. With respect to engaging communities of Limited English Proficiency, MRMPO translates many of its documents into Spanish (e.g., surveys and the Title VI Plan) and provides contact information in Spanish on its website.
Despite MRMPO’s efforts at public outreach, there still remains much work to be done in terms of engaging the general public, and particularly environmental justice communities, in the transportation planning process. Increased participation leads to better transportation decisions and outcomes for all. MRMPO will continue its efforts and try different strategies for engaging environmental justice and other disadvantaged, special needs, and underrepresented populations. MRMPO will also perform its planning activities through an equity-minded lens, ensuring adverse effects on low-income and minority populations are avoided, or at least minimized or mitigated.
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Map 3-34: Environmental Justice Populations and Roadway Network Expansion Projects
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3.11 Economic Impacts
There is a strong relationship between transportation, land use, and the regional economy. Economic development, in general, refers to In a Nutshell… the creation and promotion of institutions, infrastructure, and policy which increase quality of life and foster conditions conducive to Takeaways: The projects economic activity and innovation. Economic development activities contained in the 2040 MTP are are associated with growth in gross domestic product and expected to return $16 billion employment, personal well-being and wealth, business growth and into the economy over the next entrepreneurship, and fiscal health. When it comes to transportation 28 years in network efficiency roadway design, the level of activity observed on major corridors and gains. Maximizing the region’s in regional centers, and network efficiency all have a role to play in existing infrastructure could yield the economic health of the region. In short, transportation additional cost savings for infrastructure plays a critical role in making a region competitive in municipal budgets. Bolstering terms of both supporting industry and the ability to attract and retain efforts to attract and retain new businesses and a talented workforce. The economic impacts young professionals will be vital discussed as part of the MTP apply to three specific aspects: to the region’s overall economic transportation network efficiency, municipal cost savings, and health. creating vibrant places. Components: This section investigates some of the ties between the economy and 3.11.1 Network Efficiency transportation. The economic implications of increased Proper provision of transportation opportunities and infrastructure network efficiency, providing can be a valuable tool for fostering economic development and can public services, and an aging result in a number of benefits. In particular, economic benefits may population are discussed. be realized through increases in the mobility, accessibility, and reliability of a roadway network, which can reduce the effective Goals and Objectives: distances between locations and reduce overall transportation Economic Vitality is a core goal costs.62 MRMPO can calculate the benefits associated with network of the MTP. Strategic efficiency through its modeling tools; however, it is important to note transportation infrastructure that analysis at this time is limited to roadway projects only. MRMPO choices can promote would like to build further capacity in project evaluation given that development, enhance the improvements to bicycle, pedestrian, and transit networks also flow of people and goods, and generate important economic benefits. ensure affordable transportation options.
62 Laube, M.M., L. Rainville, and W.M. Lyons. “A Multi-Modal Approach to Economic Development in the Metropolitan Area Transportation Planning Process,” Volpe Center, 2014
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Roadway network efficiency improvements can be realized from a number of strategies including expansion of the network, safety improvements, and Intelligent Transportation Systems implementation, which helps manage congestion and improve efficiency. Several factors are commonly used to calculate economic benefits for roadway expansion or efficiency improvements. These are (1) time savings; (2) changes in fuel consumption and vehicle operating expenses; and (3) reduced number of vehicle accidents and other health benefits.
Time savings provide individuals with more leisure time by effectively shortening necessary trips, like trips to work. Time savings create large economic benefits for businesses by providing cost savings for transporting goods and materials. Additionally, time savings makes communities more attractive for future business investments by reducing costs and allowing workforces to be drawn from larger areas. Time savings may induce new businesses to form or existing businesses to expand by reducing costs that had made operations prohibitively expensive.
If roadway improvements reduce congestion, there may be fuel and vehicle operation savings for individuals and businesses. Although evidence is mixed, reduced congestion generally reduces the number of vehicle accidents but (increases accident severity).63, 64 Vehicle accidents cause undue repair costs, property damage, lost earnings, travel delays, medical and injury expenses, and may result in undue loss of life. Each of these factors hinders the local economy and places financial strain on individuals. Transportation projects promoting safety result in sizable increases in economic benefits. Congestion is also associated with more air pollution and other detrimental environmental impacts which negatively affect community welfare.
MRMPO employs the Regional Economic Model, Inc. (REMI) TranSight model to evaluate the impact of improvements and additions to the roadway network on the regional economy. The TranSight model is calibrated specifically to the MRMPO region and based on the most recent data available. REMI models, including TranSight, are well respected and used by organizations throughout the world to analyze regional economies. TranSight operates by importing data from MRMPO’s travel demand model related to trips, vehicle miles traveled, and vehicle hours traveled and calculating the economic benefits of transportation improvements. Economic gains are based on increased labor market access, decreased commuting costs, and lower transportation costs for delivering goods and services. More information concerning specific details and operation of the REMI TranSight model are included in Appendix E.
The TranSight analysis presented in this section only measures the impacts of roadway capacity and expansion projects associated with the 2040 MTP. Impacts to alternative modes of transportation are not considered, nor are network efficiency improvements such as Intelligent Transportation Systems and intersection improvements. While these transportation improvements are clearly of great value, they are not reflected in this analysis because they cannot be accurately simulated within the travel demand model environment.
63 Ibid. 64 Cambridge Systematics, “Crashes vs. Congestion - What’s the Cost to Society?” AAA, 2011
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Economic Indicators
Hundreds of variables are simulated and produced by the TranSight model. When examining the economic impact of building the long-term roadway network, several indicators are of particular interest. Results demonstrate the impact on the larger economy in terms of output and employment as well as the well-being of those employees. These indicators, provided in Table 3-19, are defined as follows:
• Employment: Employment is the estimate for number of jobs. This includes both part time and full time jobs as well as those that are self-employed. Employment figures presented here do not include unpaid family workers or volunteers. In the TranSight model, employment is affected directly by output and labor productivity and indirectly by various transportation efficiency improvements and access. • Gross Domestic Product (GDP): GDP is the total value of consumption, investment, and government spending in the region. Investments and government spending not only impact GDP directly, but also help create jobs and spur further consumption. GDP can also be seen as the total value of final goods and services produced within the regional economy. • Real Personal Income: Real Personal Income is the current dollar value of all personal earnings from wages, investment, and other earning streams. • Personal Consumption Expenditure: This is the dollar amount of disposable income spent on goods and services by individuals. Higher wages lead to higher disposable income and generally higher levels of consumption.
Results
Table 3-19 shows the economic impacts to the MRMPO region of building out the projects proposed in the 2040 MTP (see page 3-36 in the Roadways section for a map of capacity expansion projects used in this analysis). This analysis does not include the infusion of construction and maintenance dollars associated with the projects into the economy, which would realize additional benefits, particularly in the short-term. The figures presented in this table indicate increases over a baseline where the proposed long-term roadway network was not built.
The table indicates that improvements to the transportation network will result in approximately 13,350 new jobs by 2040 that would not otherwise have been created. The 25-year cumulative impact of the MTP projects results in an increase in GDP of $16 billion. Personal Incomes are projected to rise by $12.4 billion, the majority which will re-enter the economy in the form of increased expenditures on goods and services. These results demonstrate the role of transportation projects as an important aspect of the regional economy and a huge driver of economic activity.
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Table 3-19: Projected Economic Impact of Network Efficiency Improvements
Cumulative Impact of MTP Roadway Expansion Projects between 2015 and 2040 (2014 Dollars)
Total Increase in Employment 13,350
Gross Domestic Product (GDP) $16,028,667,450
Real Personal Income $12,397,056,580
Personal Consumption Expenditures $11,777,385,712
3.11.2 Municipal Cost Savings
Financing transportation projects and providing maintenance and upkeep of transportation and transit systems is a challenge for local governments. Jurisdictions in the AMPA are reliant on federal transportation spending to fund most projects. However, reliance on federal and state discretionary funding to build and maintain a transportation network introduces uncertainty and makes planning future roadway projects difficult. This is particularly true at a time when a decline in federal spending has been particularly devastating to New Mexico, a state that relies heavily on federal dollars. To help alleviate some of the financial burden on local governments, metropolitan areas are increasingly pursuing projects and development patterns that are fiscally sustainable and which minimize infrastructure expansion and maintenance costs.
The idea that municipal financial benefits are achievable through compact development has existed in planning since the 1970s. In recent years, compact development in targeted locations has been suggested as a solution to promote fiscally responsible development, serve larger populations with transit, decrease municipal maintenance costs, and increase per acre tax revenues. Further, promoting compact development may result in significant cost savings for municipalities by reducing the cost of providing emergency services and physical infrastructure.65
The Preferred Scenario, which emphasizes higher densities in key locations and better transportation connections, may result in significant cost savings for municipalities in service provision. For instance, fire stations and police substations are services that rely on fast incident response times; compact development may reduce the need for as many facilities. Likewise, compact development closer to urban centers keeps the population nearer to ambulatory and medical services. Because these services are often subsidized or provided through public dollars, municipalities may realize large cost savings
65 Burchell, R.W., G. Lowenstein, W.R. Dolphin, C.C. Galley, A. Downs, S. Seskin, K.G. Still, and T. Moore, “Costs of Sprawl - 2000”
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from compact development. A recent report documenting the fiscal impacts of growth found that compact development saves municipalities an average of ten percent for providing public services compared to more traditional development patterns.66
Infrastructure development (e.g., new roadways, utilities, water and sewer) and maintenance represent significant costs to municipalities. Because the Preferred Scenario consumes 13,000 acres less than the Trend, the demand for new infrastructure is likely to be lower. Similarly, maintenance and repair costs are likely to be lower. In addition, the Preferred Scenario also represents a more cost-effective way to connect growing centers with transit service, while low-density development can be difficult and costly to adequately serve by public transit. A national survey of literature supports this and demonstrates through multiple case studies that compact development has saved municipalities an average of 38 percent in infrastructure spending.67
In an era of fiscal uncertainty and reliance on federal and state discretionary funds, it is more important than ever that transportation projects be planned and undertaken to minimize future financial risk while providing needed transportation services. Given that growth will occur, planning for and promoting a more efficient development pattern for service delivery may provide local jurisdictions significant cost savings while providing comparable services.
Economic development also includes recognizing opportunities for public/private partnerships and leveraging alternative funding sources. It has been demonstrated that in places like Raleigh, NC; El Paso, TX; and Cleveland, OH that public investment in key catalytic projects can help to spur private investment, and vice versa. This is particularly true as it relates to transit-oriented development. In 2013, the Urban Land Institute assisted MRCOG and RMRTD with a series of well-attended workshops that convened business leaders, developers, planners, bankers and public officials to discuss the future of transit in the region. Some of the mutually agreed upon findings of the workshops were:
1) The need to design communities for the healthier movement of people 2) Transit-rich communities attract and retain highly skilled workforce 3) Shared and public places are great assets
Future development that builds upon these shared public and private interests holds the best potential for sparking collaboration and garnering investment. Not only does this contribute to a healthy economy, but it also fuels innovative approaches towards creating and revitalizing vibrant places.
66 Fulton, W., I. Preuss, A. Dodds, S. Absetz, and P. Hirsch. 2013. “Building Better Budgets: a national examination of the fiscal benefits of smart growth development,” 2013 67 Ibid.
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3.11.3 Changing Demographics, Economic Migration, and Vibrant Places
Perhaps the biggest source of economic uncertainty facing central New Mexico is changing population demographics and economic migration. High temperatures and a dry climate have long made cities in New Mexico a destination for retirement-age individuals and those seeking climate-associated health benefits. These trends have strengthened the health care and social assistance industry in recent years; however, an aging population raises uncertainty about the strength of the future workforce.
New Mexico has historically had one of the youngest populations of all states. This provided the regional economy with young professionals, a solid base for the workforce, and attracted business and industry. However, a look at the changing age composition reveals an emerging regional challenge; a declining workforce and an aging population.
Figure 3-49: Shifting Age Composition in the Region: Past, Present and Future
45%
40%
35%
30%
25% Ages 20-40 20% Ages 80+ 15%
10%
5%
0% 1985 2012 2040
In 1985, 42.2 percent of the population was between the ages of 20 and 40 and 1.7 percent were over the age of 80. Today 33.5 percent are between 20 and 40 and 3.2 percent are over the age of 80. By 2040, 31 percent of the population is expected to be between the ages of 20 and 40 and 7.1 percent are expected to be over the age of 80.68 The trend in Albuquerque seems to be towards fewer young professionals and an aging population.
More recent trends demonstrate declining birth rates and increases in out-migration. Altogether, these trends suggest the potential for a decreasing labor force and a future imbalance between an aging and increasingly dependent population and fewer workers to support them. This creates uncertainty about the future of business and industry in central New Mexico as well as the local economy.
68 2040 Population figures are based on population projections by BBER
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Retaining young professionals and providing support for the senior population can be aided by transportation and transit investments that make New Mexico a more desirable place to be. Rather than thinking of the transportation network as simply a means of conveyance, it can also build communities and make critical connections. Transportation systems can be designed to strategically make areas attractive for businesses and housing while connecting communities. Walkable and transit-friendly communities may be more attractive to a younger workforce. This dynamic is important given the findings of the MTP Questionnaire, which show that young residents are least satisfied with the available transportation options and demand investments in alternative modes at higher rates than other age groups (see Chapter 3.1 and Appendix J). Cities around the world have recognized the benefits of transportation in creating communities that are attractive to younger residents, which strengthens the future workforce. Such investments that promote a sense of place also have the benefit of improving quality of life for all members of the community.
It is also important that transportation projects help build an environment that is friendly to innovation and business. Projects that emphasize access and mobility are of particular value to private enterprise by reducing the costs of doing business and make the region more attractive to new industry. MRCOG, in coordination with other government entities, has undertaken an economic branding campaign to guide future policy and investment in such a way that Albuquerque becomes a destination for innovation. The “Ingenuity Central” campaign is focused on economic development, planning, and policy making which encourage entrepreneurship and foster collaboration between business, government, and individuals. MRMPO and the region can support these economic development efforts through transportation projects that connect key destinations and improve the users’ experience by offering multiple modes that are both safe and accessible.
The Preferred Scenario represents a 30,000 foot view of the region by establishing high level guiding principles that have been developed collaboratively with the intent of making the AMPA a more desirable place to be and traverse. By honoring unique places and emphasizing the importance of viewing the region as a whole system, the Preferred Scenario sets a tone for the region. And by emphasizing transportation and housing choices, diversity, and balance, it also sets a direction. MRMPO believes that by addressing transportation needs with a keen focus on other aspects that impact quality of life, this transportation plan is an important element of the region’s overall economic health.
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3.12 Travel Demand Management
Rather than addressing the functionality of the region’s roadways and improving the movement of vehicles, as with transportation systems In a Nutshell… management (TSM), travel demand management (TDM) is about reducing the demand for vehicle travel in the first place. More Takeaways: Travel demand specifically, TDM focuses on changing travel behavior through a range management (TDM) addresses of strategies and incentive programs to take trips off the roads, reduce transportation challenges by the length of trips, shift trips to times of day when there are fewer reducing demand for single- vehicles on the road,69 or shift those trips to alternative modes. occupancy vehicle trips, particularly during the most With congestion expected to increase over time, there is a need to congested times of day. TDM complement roadway infrastructure improvements with other efforts strategies can also reduce to reduce vehicle miles traveled. Travel demand management transportation costs for represents a suite of strategies that can help maintain a viable individuals, increase travel transportation system and address long-term needs. Under the right options, improve air quality by circumstances, and particularly when implemented as a set of reducing vehicle emissions, and strategies as opposed to standalone efforts, TDM strategies can help improve public health by reduce transportation costs for individuals, increase transportation promoting active modes of options, reduce peak period congestion and overall travel demand, transportation. improve air quality by reducing vehicle emissions, and improve public health by promoting active modes of transportation (i.e., walking, Components: This section bicycling, and public transit). describes general TDM strategies, existing activities in the AMPA, Regions across the country are creating innovative public and private and discusses opportunities to sector partnerships, introducing incentives, and taking advantage of expand the implementation of changing travel preferences to impact transportation patterns. While TDM programs. there are some modest efforts already in place in the region, there is much more that can be done. What follows is a description of TDM Goals and Objectives: TDM strategies, existing activities in the AMPA, and discussion of programs and strategies support opportunities to expand the implementation of TDM programs. several MTP goals and objectives: Mobility through expand multi- modal transportation options; Economic Vitality through
ensuring affordable transportation options; and Environmental Resiliency through improving air quality.
69 Center for Urban Transportation Research, University of South Florida, http://www.cutr.usf.edu/programs- 1/transportation-demand-management-2/
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3.12.1 General TDM Strategies
TDM can be thought of as a suite of strategies that are to be applied in different situations and contexts, but when taken together can have an important impact on travel behavior and the region. TDM strategies can be divided into three general categories:
• Transportation: At its core, TDM is about reducing vehicle miles traveled by encouraging non- motorized travel and altering driving habits. The more viable transportation choices that are offered the more likely people will choose alternatives to driving alone. The challenge lies in creating and ensuring such options exist, in part through investments in transit, bicycle, and pedestrian infrastructure. Other physical infrastructure strategies include the provision of High Occupancy Vehicle (HOV) or High Occupancy Toll (HOT) lanes, or parking management strategies that reduce excess parking in some cases and maximize parking efficiency in others. • Programs and policies: In addition to changes in physical infrastructure, TDM includes organized efforts to change individual travel modes or travel schedules. While programs can be applied at a regional or district level, such as a downtown, many take place in individual businesses or among groups of employers located in places where congestion is particularly problematic.70 Often, private sector participation is accomplished through partnership with a government agency or by government requirement. Program formats vary and can include providing employees with incentives to carpool or commute via transit or bicycle, reduced (subsidized) transit fares, or offering flexible schedules that can reduce the number of peak-hour commuters. Many of these efforts tout the universally-beneficial premise of improving employee health and lowering healthcare costs, as well as lower parking costs on behalf of employers (and sometimes employees, too). TDM efforts can be aided by the use of technology to make alternative modes easier to use and reduce unnecessary driving. For example, mobile apps are being increasingly deployed to help users identify when the next bus will arrive or find ride-sharing opportunities. • Land use: Unlike policies or programs that address day-to-day behavior or infrastructure investments that provide additional transportation options, land use changes are structural in nature and address the built environment of a region. Low density, single-use land use patterns often make single-occupancy vehicle travel the only available mode since distances between uses and activities are great and transit cannot be easily supported in these areas. By contrast, more compact land uses result in shorter distances between destinations, allow for more walkable neighborhoods, and make transit usage more viable due to higher densities. Research shows that higher-density mixed-use neighborhoods generate vehicle trips at a lower rate than traditional developments with separated uses.71 These strategies can also address the existing jobs-housing imbalance, which has contributed to greater rates of vehicle miles traveled. Land
70 Washington state law requires urban areas with traffic congestion to reduce single-occupancy vehicle travel and regional VMT by developing travel demand management programs. 71 The 2009 Urban Land Institute report, Moving Cooler, found that compact development reduces driving approximately 20 to 40 percent; EPA Trip Generation Tool for Mixed-Use Developments http://www.epa.gov/smartgrowth/mxd_tripgeneration.html
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use strategies are therefore highly complementary to other TDM efforts and can have a great impact on travel behavior. Although they are worthwhile to pursue because of their effectiveness, it usually takes many years for land use changes to have their intended impacts.
Figure 3-50: TDM Strategies Matrix
Strategy Definition Traffic management approach that dedicates lanes to vehicles with multiple occupants or to travelers willing HOV/HOT Lanes to pay a toll. Public Transit Investments Improving frequency or extent of service to encourage travel by public transportation. Alternative Mode Investments Improving bicycle and pedestrian infrastructure to encourage non-motorized travel. Strategies to address excessive parking in some locations and increase parking efficiency in others. Parking Management Strategies include elimination of excess parking, shared parking agreements, increased parking costs, structured parking, etc. Investments in bicycle infrastructure near transit station areas or programs such as bikeshare that make Transportation Bicycle/Transit Integration bicycles available for shared use to extend the reach of public transit. Tolls or congestion pricing that charge users for the access to certains roads or locations. Pricing strategies Road Pricing are considered the most effective means of reducing congestion but are extremely difficult to implement. Generally private sector programs in which individual businesses or housing developments offer a fleet of Carshare shared vehicles to reduce need for vehicle use and ownership. Regional or employer-based programs to pair commuters traveling to and from similar origins and Ridesharing/Carpooling destinations to reduce single-occupancy vehicle travel. The use of telecommunications and technology to substitute for physical travel, allowing some workers to Telework/Telecommuting work remotely and refrain from vehicle travel. Allowing employees flexibility in their work schedules to facilitate transit usage or traveling outside of the peak Flexible Schedules periods. Fare reductions or transit promotions to encourage transit usage among particular populations or for travel to Transit Incentives certain locations. Programs that provide taxi services or access company vehicles so that employees that traveled to work by
Programs and Policies Programs Guaranteed Ride Home transit, carpool, or bicycle can get home or to an appointment in the case of an emergency. Transportation Management Associations of employers in an area that has congestion and/or limited parking that offer incentives to Associations/Organizations collectively encourage ridesharing and the use of transit and other commuting alternatives. Policies to encourage development of vacant land in urban areas. In contrast to sprawl, infill can reduce the Infill Incentives distances individual must travel to access services or job sites. Any development that includes a combination of related uses - residential, commercial, cultural, institutional, Mix of Land Uses or even industrial - in one place (or one building). Uses should be complementary and connected to surrounding environment. Land Use Transit-Oriented Development High or medium-density development in the immediate vicinty of transit stations.
Sources: VTPI and MRMPO
3.12.2 Existing TDM Efforts
Two agencies, the City of Albuquerque’s ABQ Ride and the Rio Metro Regional Transit District, are primarily engaged in TDM efforts in the AMPA. Over the years, these TDM efforts have evolved in ways that lend themselves to greater cooperation, particularly as Rio Metro’s visioning process may recommend opportunities for integration between Rio Metro and ABQ Ride.
The Smart Business Partnership is one of the primary TDM programs that both ABQ Ride and Rio Metro employ to engage public agencies and institutions and private-sector business. Essentially, partners are encouraged to provide alternatives to single-occupancy vehicle travel by:
• Allowing alternative work schedules (e.g., telecommuting and flex schedules) • Subsidizing bus and rail passes
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• Promoting the federal commuter tax benefits • Installing/constructing improvements such as carpool spaces and bike racks and lockers • Operating shuttles or vanpools or providing fleet vehicles • Advertising and promoting transit and other alternative modes to access work
In exchange for their participation, Smart Business Partners receive recognition on transit vehicle displays, and on agency websites and promotional materials. They are also eligible for discounted passes and advertising. Rio Metro has, for example, engaged over 90 businesses and agencies representing 84,000 employees and 30,000 students through this program.
One of the most important aspects of the Smart Business Partnership is that while it is championed by transit agencies, it allows partners to consider both transit and non-transit related TDM strategies. Similarly, ABQ Ride also offers the Guaranteed Ride Home program—a form of insurance to non-single- occupancy-vehicle commuters (regardless of mode) in the event that an unscheduled meeting or emergency leaves them unable to use their regular means of alternative transportation to get to their destination.
However, there are other ways in which Rio Metro and ABQ Ride directly promote transit. Both are actively involved in efforts such as providing bike lockers at Rail Runner and park-and-ride stations, hosting special events and contests, speaking to school-aged children about how to use transit, conducting safety outreach campaigns, and advertising and marketing existing and new services to various markets.
Technology initiatives are also an important aspect of TDM. Rio Metro is introducing a new system in 2015 that will incorporate smartphones as a means of ticketing, scheduling, contacting Rio Metro, and distributing important notifications. ABQ Ride’s “Where’s My Bus” website and corresponding iPhone and Android app are also examples of TDM-funded technology solutions that make trip planning more predictable and the transit system more understandable.
In addition to ABQ Ride, the City of Albuquerque also carries out several bicycle-related TDM efforts. Actions range from a bike locker program and the publication and distribution of an area-wide bicycle map to bicycle safety and maintenance education courses for both children and adults. One of the most recent successes is the Parks and Recreation Department’s opening of the Esperanza Community Bike Shop, which was supplemented by regional financial support through the TIP. From this new facility, the department provides an open shop featuring work stations, tools and used bicycle parts, build-a-bike and earn-a-bike programs, classes, and work study/volunteer opportunities.
The Downtown ABQ Main Street Initiative and MRCOG are in the process of implementing a pilot bikeshare program in Downtown Albuquerque. The program is a public private-partnership in which Downtown employers contribute to the capital and operating costs of the program, while public agencies offer technical support, planning, and coordination services. One goal of the project is to encourage greater use of alternative mode travel for commuting purposes by decreasing reliance for single-occupancy vehicle travel with the Downtown area. Additional federal funds are expected in FY 2016 and 2017 to help expand the program to other parts of the metro area.
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3.12.3 Expanding TDM in the Region
TDM efforts are consistent with and support the goals of the 2040 MTP for several important reasons: 1) they help manage congestion; 2) they reduce vehicle emissions; 3) they improve public health by encouraging more trips to be accomplished through active transportation modes. To further promote TDM in the region, the following actions could be taken. Note that some could be implemented immediately, but others require consultation and further investigation before pursuing.
Regional TDM program
An important opportunity lies in consolidating the disparate TDM activities in the region and creating a regional TDM program. This could be pursued in multiple ways. An inexpensive and easy-to-implement first step could be to create a clearinghouse of information on regional efforts. Preliminary efforts could begin by simply bringing together TDM-related organizations and discussing ways to leverage different activities. A more comprehensive approach could entail consolidating TDM efforts under one agency that either administers TDM programs or serves as a resource center for raising and distributing funds to eligible activities across the region. This structure could ensure the strategic implementation of programs that would be most effective at addressing regional transportation needs.
Transportation Management Associations
Public agencies and private sector businesses may create partnerships to bring together resources and reach a broad range of participants. A common structure for these partnerships is transportation management associations (TMA). TMAs are associations of employers in an area that has congestion and/or limited parking. These organizations promote TDM strategies to encourage ridesharing, the use of transit and other alternatives to single-occupancy vehicle travel through incentives such as free or reduced-cost parking for carpools, incentives for buying transit passes, and other programs aimed at easing the transition to commuting by alternative modes. Some states, such as Washington, require large employers to enact a commute trip reduction program using these kinds of incentives.
Individual Employer Programs
An advantage of TDM as a general strategy is that efforts can be made at a small-scale and do not require formal programs. Simple measures that may be pursued at the employer-level include offering flexible schedules, preferred parking for carpools, shower facilities for bicycle commuters, and guaranteed ride home programs. MRMPO is not aware of location or employer-based TDM programs in the region, other than the University of New Mexico. Cities or counties could play a role by requiring large employers or building developers to institute commute trip reduction programs to maintain a certain level of vehicle trips as a condition for development approval.
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Other Potential Programs
• Utilize ride-sharing or ride-matching software that could help people across the region find carpools for their commute trips • Develop a regional Safe Routes to School program that would provide relevant data and analysis to school districts, develop contacts throughout the region, provide information about funding opportunities, work with the New Mexico DOT to disseminate information to school districts and individual schools, and create a regional committee to work on various strategies for implementing Safe Routes to Schools72 • Financial support of selected events and programs that encourage alternative modes of transportation
72 Safe Routes to Schools promotes safer conditions to allow students to walk or bike to school which helps reduce transportation demand and also supports improved health outcomes for students. Changing student behavior can also be seen as a long-term strategy in changing the public’s perception of and familiarity with active modes of transportation.
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3.13 Livable Communities: Access and Connectivity
Our ability to easily access the things we need affects our daily quality of life. In the transportation world, accessing goods and services is often seen as a function of mobility, which refers to the speed and In a Nutshell… distance traveled. An example of a transportation strategy that Takeaways: Livability in a targets mobility is reconfiguring signal timing to maximize the community depends in part on efficiency of the system and allow vehicles to flow more freely. In how easily one can access recent years, however, there has been a shift in thinking from striving amenities. Improving purely for mobility (i.e., moving farther faster) to focusing more on connectivity helps facilitate accessibility, which refers to how well individuals can access goods traffic flow and allows for more and services. Lessening the need to travel great distances (or lengths transportation options. of time) by bringing amenities, residences, and job centers closer Improving access also affects together can be accomplished in a variety of ways. These include affordability by reducing encouraging a mix of land uses, increasing the connectivity of the transportation costs. roadway network, and targeting job-dense areas with affordable housing. In particular, connectivity refers to the ability to reduce Components: This section travel distances and offer multiple routes to reach the same discusses the concept of location destination. Although maintaining and improving regional mobility for affordability to analyze the all modes of transportation remains important, taking a more combined housing and multifaceted approach to addressing accessibility allows agencies to transportation costs in the AMPA augment mobility strategies and ultimately improve the daily and describes the role roadway experiences and quality of living for AMPA residents. connectivity plays in access. Access to activity centers and The 2040 MTP in general, and the Preferred Scenario in particular, Rail Runner stations is evaluated places an emphasis on creating more livable communities. According with the TRAM tool, which can to the U.S. Department of Transportation, these are “places where evaluate existing transportation coordinated transportation, housing, and commercial development needs and the benefits of gives people access to affordable and environmentally sustainable potential projects or policy transportation.”73 This section focuses on two specific factors related changes. to livability: accessibility and connectivity. Goals and Objectives: Improving
access and expanding 3.13.1 Accessibility and Affordability transportation choices are objectives that support the Many variables impact accessibility, including the separation or mix of respective MTP goals of Mobility land uses, and the design, condition, and continuity of facilities such and Active Places. as sidewalks, bike lanes, and roadways. Mixing land uses provides the
opportunity for more activities closer together and results in lower
73 http://www.dot.gov/livability/101
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vehicle emissions, and makes it more likely that amenities are within walking or biking distance from residences. Making distances shorter also helps reduce vehicle emissions, fuel consumption, and travel time. Increased density can also support accessibility goals, though density by itself does not place people closer to the things they need. Transportation investments and land use policy must work together in order to increase access to destinations, amenities, goods, and services. For example, targeting density near key locations such as transit corridors and activity centers can link non-motorized users with amenities, reducing the need for driving.
Housing and Transportation Affordability
Affordability is an important component to the issue of accessibility and is vital to ensuring that the region is livable for current and future residents. According to the Department for Housing and Urban Development (HUD), “(f)amilies who pay more than 30 percent of their income for housing are considered cost burdened and may have difficulty affording necessities such as food, clothing, transportation and medical care.”74 Transportation is typically a household’s second largest cost, and a family that lives far away from their places of work in order to find affordable housing may be losing those savings due to higher spending on transportation.75 That is why the Center for Neighborhood Technology (CNT) and HUD have recently developed tools that integrate both costs in order to show how truly affordable, or not, an area is for a variety of household types. CNT’s tool is called the Housing + Transportation Affordability Index and HUD’s is the Location Affordability Index. CNT has found 15 percent of income to be an attainable goal for transportation affordability, and considers 45 percent of a family’s income as the benchmark of affordability when adding the two estimated costs.
Maps 3-35 and 3-36 below were produced using HUD’s Location Affordability Index data and demonstrate how geographic areas that may seem affordable when looking only at housing or transportation costs are revealed as unaffordable when the costs are combined. Although this analysis can be performed using HUD’s data for eight household types, for demonstrational purposes, the following maps measure affordability for a household of four earning the area’s median income (AMI) of $48,990. The transportation costs are calculated assuming two commuters.
74 Department of Housing and Urban Development, http://portal.hud.gov/hudportal/HUD?src=/program_offices/comm_planning/affordablehousing 75 Center for Neighborhood Technology, http://htaindex.cnt.org/about.php
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Map 3-35: Housing Affordability in the AMPA for a Median Income Family of Four
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Map 3-36: Combined Housing and Transportation Affordability in the AMPA
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Looking only at housing affordability, 89 percent of block groups in the AMPA are considered affordable for this household type using 30 percent or less of a household’s income spent on housing as the threshold for what is considered affordable. When household and transportation costs are combined, however, only five percent of this household type are considered affordable and fall within the 45 percent combined cost guideline. This underscores the importance of both reducing transportation costs that are exacerbated by lengthy trips as well as reducing the need for vehicle ownership.
According to AAA, the total cost of owning and operating a small sedan in 2012 was approximately $7,684 per year.76 If a two-car commuter household were to spend this much of their income on transportation, assuming the Location Affordability Index’s AMI for this area of $48,990, they would spend 31.4 percent of their annual pre-tax income on transportation. For one-car households with two commuters this cost would drop dramatically to 15.7 percent plus any additional cost for the non-car commuter such as an annual bus pass or the cost of maintaining a bicycle.
Building permit data show that over the last 20 years growth has occured in peripheral parts of the metro area that are great distances from transit hubs, major activity centers and job-dense areas. The development patterns typical in these areas make it challenging to offer viable transit services there. These factors contribute to longer trip lengths as well as the increased necessity of personal vehicles to carry out everyday activities.
The relationship between trip lengths and affordability is clear: costs are a funciton of vehicle ownership and operating expenses. Operating costs are higher if more travel is required, while vehicle ownership is a necessity if distances are too great for trips to be achieved by other modes. Even if individuals choose to drive for all trips regardless of length, operating expenses can be reduced if those trips are shorter. Hence, reducing trip lengths can improve affordability by either reducing vehicle ownership rates (increasingly observed in households with more adults than vehicles) or by reducing vehicle operating costs.
76 AAA, “Your Driving Costs,” 2012
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Map 3-37: Combined Housing and Transportation Affordability and Recent Building Permits
Maps 3-35 through 3-37 highlight the importance of lessening the cost burden of transportation in the AMPA and emphasizing future growth in areas that are closer to job sites and existing amenities and services. It is also crucial to target growth in areas that are easily serviceable by transit, as well as to fill in gaps in the bicycle and pedestrian networks to expand transportation options.
Another way to help alleviate congestion and shorten trip length is to improve roadway connectivity. The benefits of connectivity for improving access, methods to evaluate roadway connectivity, and analysis on access to major activity centers and Rail Runner stations.
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3.13.2 Connectivity
The form and function of the roadway network affects the efficiency of every mode of transportation, including private vehicle travel. When this network is not well connected, or is disjointed, transportation issues such as congestion become more severe as there is little redundancy in the network to provide alternative route options. The Victoria Transport Policy Institute defines connectivity as “the density of connections in path or road network and the directness of links. A well-connected road or path network has many short links, numerous intersections, and minimal dead-ends (cul-de-sacs).”77
For drivers, poor roadway connectivity also increases travel times and affects travel choices as it makes taking alternative modes of transportation more challenging and often dangerous. With fewer route options, traffic accidents, stopped vehicles, and construction can generate major roadway backups. Stopped traffic means vehicles idling longer, which produces additional pollution and negatively impacts air quality. More time spent in the car due to circuitous routes and roadway congestion also means lost hours of productivity.
The effects of a poorly connected roadway system can be observed in roadway conditions across the AMPA, where the dense grid network of east Albuquerque is able to withstand increases in vehicle travel, while conditions in west Albuquerque are expected to deterioriate over time due in large part to the more limited roadway network. One jurisdiction that is proactivly addressing long-term connectivity needs is the City of Rio Rancho, which is constructing a large-scale grid system over time within the city limits (see the network expansion map in Chapter 3.2).
Disjointed road networks impact non-drivers as well by discouraging pedestrian and bicycle travel due to the circuity of potential routes that necessitate a lengthy journey even though the origin and destination may lie close together. In addition to route options, well-connected local roads provide safer biking and walking conditions than the major roadways that frame them. Local roads are less heavily trafficked and the cars that do use them are traveling more slowly. This lowers the fatality risk for bicyclists and pedestrians if an accident does occur that involves a vehicle.
Poorly connected areas are also difficult to serve with public transit as potential riders in these areas would have to travel long distances by foot or bicycle in order to catch the bus, which is a major deterrent. Park and ride lots can serve as collection points for riders in these areas; however, if the transit service is uncompetitive with the time it would take to drive to a destination, or if the rider’s destination does not have expensive parking fees or other parking restrictions, these riders may still prefer to drive. In these areas, employer incentives to take transit or parking restrictions at the destination could help provide a more viable ridership base.
Measuring Connectivity
Common methods for measuring connectivity include finding the average block length or the number of four-way intersections in a given area, determining the percentage of an area with a gridded street
77 VTPI, “TDM Encyclopedia,” www.vtpi.org
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network, or measuring the ratio of links (streets) to nodes (intersections) in a network.78 Examples of two of these methods, route directness and intersection density, are shown in Figures 3-51 and 3-52. All approaches point to the gridded street network as the type that provides the highest level of connectivity.
Two local examples of different road networks are compared in Figures 3-51 and 3-52. The disjointed network with poor connectivity in the first map provides few route options, and requires lengthy trips even where destinations are physically close together. The well-connected grid in the second map provides all road users a variety of route options. In order to quantify the differences in connectivity in these different areas, the route directness method divides the necessary travel path distance by the shortest distance between the origin and destination; the lower the route directness ratio, the better the connectivity in the given area.
Figure 3-51: Route Directness: A Measure of Roadway Connectivity
78 Dill, Jennifer, “Measuring Network Connectivity for Bicycling and Walking,” Transportation Research Board, 2004
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Route Directness Ratio = 푊푊푊푊푊푊푊 푑�푑푑𝑑푑푑 푆ℎ표표𝑜𝑜 푑�푑푑𝑑푑푑 , • Disjointed road network example: = 13.2 (just over thirteen times farther than the 10 560 푓� shortest distance between points) 800 푓� , • Gridded road network example: = 1.65 (just over one and a half times farther than the 1 320 푓� shortest distance between points)8 00 푓�
The intersection density method, shown in Figure 3-52, counts the number of four-way intersections per square mile. In this case the higher the intersection density the better the connectivity.
Figure 3-52: Intersection Density: A Measure of Roadway Connectivity
Intersection Density = Number of four-legged intersections/square mile
• Disjointed road network example: 11 intersections/square mile • Gridded road network example: 112 intersections/square mile
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3.13.3 Relationship between Accessibility and Connectivity
The tool used in this section to visualize roadway connectivity and quantify access to certain amenities is called the Transportation Accessibility Model (TRAM). This program can map the area that can be reached by walking, bicycling, driving, and taking transit in a given time period. What it reveals about accessibility is dependent on the underlying connectivity of the road networks. For example, the TRAM model can be used to find the areas – as well as the population and number of households or businesses within these areas – that can be reached in five minutes from the Alvarado Transportation Center in the Central Business District (Downtown Albuquerque) by various modes. These “transportation sheds” (shown on the maps in Figure 3-53 in dark blue) allows one to quantify how many people can access certain services, how many services fall within a certain transportation shed, or how much ground a person could cover in a given time using various modes. Figure 3-53 compares how much ground can be covered using different modes in five and ten minutes (transit contours are fifteen and thirty minutes to allow time for the possibility of a route transfer).
On a perfectly gridded network, the contour would take the shape of a diamond because the network’s redundancy maximizes a person’s possible travel distance on foot, by bike, or car. As the distance from the traveler’s origin increases on a somewhat gridded network the shape dilutes. Transit contours also reveal the shape and efficiency of the transit network. TRAM assumes that a transit trip begins when the traveler boards a bus and accounts for each route’s headway, meaning how many minutes there are between buses on that route. Each trip begins at the center of the light blue contours.
TRAM analysis can be performed at a regional, neighborhood, or site-specific scale. In addition to mapping accessible areas for various modes at different time increments, TRAM can be used to contrast current and proposed road networks to identify alignments and network configurations that provide the most access to users for different modes. TRAM can also be utilized to understand the improvements in access that can be gained from a new transportation investment, such as additional roadway capacity, filling in a gap in the bicycle network, or increasing frequency of a transit service. In this way, transportation improvements can be thought of as more than a means of increasing vehicle speed; these improvements can also be evaluated for their impact on accessibility. MRMPO encourages agencies to utilize the tool during project development.
In this section, TRAM is used to map accessibility to select activity centers and Rail Runner stations in the AMPA (see Map 3-38). Activity centers and major transit hubs are areas where improvements in connectivity and targeted land use changes could increase access to amenities, such as goods, services, and transportation. Establishing a base level of access to these sites will enable future comparison as conditions change. It also allows for the comparison of network performance in different potential growth scenarios. Tables 3-20 and 3-21 estimate the current population, number of dwelling units and employed persons within five and ten minute trip lengths from major activity centers and Rail Runner stations on various modes.
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Figure 3-53: Central Business District Travel Time Contours by Mode
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Map 3-38: Select Activity Centers and Rail Runner Stations in the AMPA
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Analysis: Access to Activity Centers and Transit
Currently, 75 percent of the AMPA’s population resides within a ten minute drive of an activity center, and 40 percent live within a ten minute drive of a Rail Runner station. When looking at biking or walking, both activity centers and Rail Runner stations are accessible to much fewer people, with less than two percent of the population within a ten minute walk of an activity center, and 0.4 percent of the population living within a ten minute walk of a Rail Runner station. As conditions in these areas change, with the addition of trail connections or transit oriented development for example, access to these areas may expand to a greater percentage of the AMPA population. Measuring access to major activity centers and premium transit services provides a benchmark to compare against future conditions.
Table 3-20: Access by Mode to Select Activity Centers by Mode, 2012
Minutes by Mode Population Employed Persons 5 Minutes 236,752 26.9% 173,633 44.6% Auto 10 Minutes 663,015 75.4% 328,215 84.4% 5 Minutes 284,049 3.2% 60,422 15.5% Bike 10 Minutes 139,542 15.9% 140,407 36.1% 5 Minutes 32,636 0.4% 12,212 3.1% Walk 10 Minutes 16,158 1.8% 43,615 11.2% 15 Minutes 142,551 16.2% 156,511 40.2% Transit 30 Minutes 467,621 53.2% 296,311 76.2%
Table 3-21: Access by Mode to Rail Runner Stations, 2012
Minutes by Mode Population Employed Persons 5 Minutes 68,034 7.7% 78,299 20.1% Auto 10 Minutes 354,881 40.4% 235,076 60.4% 5 Minutes 7,537 0.9% 19,267 5.0% Bike 10 Minutes 43,957 5.0% 53,121 13.7% 5 Minutes 665 0.1% 2,070 0.5% Walk 10 Minutes 3,559 0.4% 10,637 2.7% 15 Minutes 49279 5.6% 58,792 15.1% Transit 30 Minutes 267240 30.4% 212,619 54.7%
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Figures 3-54 and 3-55 show changes in access to activity centers, employment sites and transit from the base year (2012) to the forecast year (2040) in the Trend and the Preferred Scenarios. The intervals represent driving times during PM peak hour conditions. In the Preferred Scenario, access to activity centers in under ten minutes increases by 51,382 people, 7,932 employed persons, and 25,409 dwelling units compared to the Trend Scenario. The population and number of dwelling units near Rail Runner stations show positive growth compared to the Trend in all time increments. Although the number of employees within ten minutes of a Rail Runner station is slightly lower in the Preferred Scenario than the Trend, there is a substantial increase in employment near transit in both future scenarios. Overall, the increased concentrations of population, employed persons, and dwelling units within ten minutes of activity centers is representative of the Preferred Scenario’s emphasis on increasing density in key nodes in order to expand access to transit, jobs, goods, and services.
Figure 3-54: Activity Center Access: 2012, Trend, and Preferred Scenarios
1,400,000 10 Minutes 20 Minutes 30 Minutes 1,200,000
1,000,000
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0 2012 2040 2040 2012 2040 2040 2012 2040 2040 Trend Preferred Trend Preferred Trend Preferred Population Employment Dwelling Units
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Figure 3-55: Rail Runner Station Access: 2012, Trend, and Preferred Scenarios
1,200,000 10 Minutes 20 Minutes 30 Minutes 1,000,000
800,000
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0 2012 2040 2040 2012 2040 2040 2012 2040 2040 Trend Preferred Trend Preferred Trend Preferred Population Employment Dwelling Units
3.13.4 Shifting Age Dynamics and Accessibility for Senior Citizens
The AMPA is expected to experience important shifts in the composition of the population as seniors (ages 65 and older) form a greater share of the population while the labor force participation rate is expected to decline. In particular, the percentage of seniors will increase from 12 percent of the total AMPA population in 2012 to 21 percent in 2040; this represents an increase of 160,000 people. Changing age dynamics will impact the types of trips that seniors make (e.g., fewer commuting trips), as well as the types of services and transportation and housing options that need to be provided. Given the increased need for healthcare services among seniors, transportation to and from these facilities is an important consideration. This is addressed in the public health section (see Chapter 3.8) through the accessibility of medical facilities via public transit. However, the general mobility needs of a population that may not rely as widely on driving is a larger and more general issue.
As seniors account for a greater portion of the population, they will also form a greater share of the nation’s drivers. Baby Boomers are a generation that have become accustomed to the individual mobility and convenience of car ownership, and expect to remain active and mobile well into retirement. The National Association of Area Agencies on Aging reports that by 2030, 25 percent of
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licensed drivers in the U.S. will be over the age of 65.79 Auto dependency among seniors occurs most acutely in single–use residential communities, where services are spread far apart and the low population density is not conducive to robust transit services. A 2010 American Association of Retired Persons (AARP) survey finds that “nearly 90 percent of those over age 65 want to stay in their residence 80 for as long as possible, and 80 percent believe their current residence is where they will always live.” This “greying” of residential communities is a phenomenon that will continue to intensify in the U.S. due to the greater proportion of seniors in the population and the fact that many of those people will age in place.81
The increase of senior drivers has implications for driver as well as pedestrian safety. A 2002 study found that “(o)lder drivers are not only more likely to have crashes on an exposure basis (per trip or mile driven), they are also generally more likely to be at fault in a multicar crash, and more likely to be killed or injured than are younger people in a crash of comparable magnitude.”82 Older drivers are also vulnerable as pedestrians, both to auto-pedestrian crashes and to falls. Tailoring pedestrian improvements to older individuals, such as ADA-accessible sidewalks and traffic calming measures in areas with frequent foot traffic, will make conditions safer for all users.
This increase in the percentage of seniors also impacts commuting patterns. Older drivers make fewer work trips that contribute to morning and evening peak congestion. Rather, they tend to make most of their trips between 9 AM and 1 PM, avoiding freeways and favoring local roads.83 While these driving behaviors have a beneficial impact on peak hour traffic, they can contribute to mid-day congestion. Other impacts may be felt by those providing support for senior citizens, leading to additional trips for caretakers or home health providers.
Although the cost of car ownership can be a transportation barrier for seniors, especially those on a fixed income, driving is often the most convenient form of transportation for seniors. This is especially true for those who are somewhat less mobile. Cars enable door-to-door transportation, whereas taking public transit or walking can be much more physically challenging. It is not necessarily true that seniors who take alternative modes of transportation cannot drive. One international study of travel patterns among older populations found that, “(w)hen given a reasonable set of transportation options, older people…appear to choose the best or most convenient mode for each trip.”84 Providing a host of viable transportation options, including ADA-accessible pedestrian facilities and public transit near amenities and services may not only increase transportation options for older residents who cannot drive, it would also be a resource for those who can.
79 Vital Aging Network, “Maintaining mobility in an aging population” 80 Transportation for America, “Aging in Place, stuck without options: Fixing the mobility crisis threatening the baby boom generation,” 2011, p.1 81 Center on Urban and Metropolitan Policy, “The mobility needs of older Americans: Implications for transportation reauthorization,” 2003, p.3 82 Ibid, p. 10 83 Ibid, p.9 84 Ibid, p.12
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Strategies to Improve Access for an Aging Population
The desire to age in place is not likely to change in the near future; therefore, addressing the transportation needs of seniors by improving accessibility is a critical part of creating “lifelong communities,” meaning places for persons of every age and ability. The goals of a lifelong community are to provide housing and transportation options, encourage healthy lifestyles, and expand access to services.85 This necessitates improving roadway connectivity, improving pedestrian and transit access, along with implementing certain land use changes including providing services in or near neighborhoods.
Improving transit access necessitates increasing density in targeted locations as well as creating a greater mix of land uses. When both of these changes are made in infill locations throughout already established areas, providing transit services becomes more viable. Augmenting transit services with pedestrian amenities around transit stops such as shaded places to rest and redesigning streets as complete streets for all users helps facilitate walkable communities, where walking is “pleasant, safe, and secure.” 86 The opportunity to provide services closer to established suburbs also increases. Encouraging multi-use developments that allow residents to access many of the services they need without driving may allow senior citizens to remain in their communities if not their previous homes.
In addition to improving transit services closer to residences, providing alternatives to traditional transit services will also enhance mobility for seniors. These services can include volunteer drivers that provide on-demand transportation or ride sharing programs.
3.13.5 Strategies to Improve Access and Connectivity
Improving connectivity is one way to increase access to goods, services, and job sites. Various strategies that improve connectivity include gridded street networks, expanding transit services, and filling in gaps in the bicycle and pedestrian networks. For maximum impact, connectivity improvements can be targeted in and around major activity centers such as community centers, schools, transit stations, and job-dense areas, increasing access from and to these sites.
MRMPO’s Long Range Transportation System (LRTS) Guide (see Chapter 5.2 and Appendix H), which is included as part of the Futures 2040 MTP, offers guiding principles to increase roadway connectivity. The Guide recommends that proposed roadways and trail systems in developing areas contribute to the surrounding transportation network by facilitating travel through the development to adjacent neighborhoods. It is important to establish roadway and trail access between arterials and neighborhoods prior to development to avoid conflict with residents after build-out. In general, shorter block lengths and a gridded street pattern should be encouraged and dead-end or cul-de-sac roads should be discouraged. Access should be provided to multi-purpose trails that border neighborhoods
85 Atlanta Regional Commission, “Lifelong communities handbook: Creating opportunities for lifelong living,” p.1 86 Center on Urban and Metropolitan Policy, “The mobility needs of older Americans: Implications for transportation reauthorization,” 2003 p. 13
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but are inaccessible due to subdivision walls or drainage facilities. Removing a section of wall or providing a bridge across drainage barriers can create this access. In both developing and developed areas, drainage and utility easements can be assessed as possible trails or local roads.87 Providing multiple route and mode options lessens the impact of road work, vehicle crashes or special event closures on the performance of the transportation network and should be considered as a component of all future developments in the AMPA.
The LRTS Guide promotes the concept of creating complete networks for different users.88 For example, trips on regional principal arterials prioritize passenger vehicles and freight due to their high speeds and limited access to local roads. Creating a complete network would ensure that there are route options for every type of transportation user: bicyclists, drivers, freight carriers, pedestrians, and transit users. Not every road will be appropriate for every user all of the time, but ensuring that individuals have access to various transportation options will benefit individual residents as well as the performance of the overall network. The LRTS Guide’s chapter on Complete Networks outlines the roles and intended users for each class of road. Information on performance measures that can help monitor project performance and improve the transportation system, including multi-modal level of service, walkability, connectivity, and safety, can be found in Chapter 8 of the LRTS Guide.
Increasing location affordability options for AMPA residents will also improve access to daily necessities. Increasing the housing stock in job-dense areas could provide people with more housing options close to job sites. Targeting these areas with mixed use zoning and higher density requirements could also reduce per capita vehicle miles traveled by bringing many residents closer to goods and services. Dovetailing these density increases with transit investments would concentrate more potential riders near transit services and provide people with more transportation options. Two ways to increase density without much or any vertical structure increase involve residential infill on properties that are currently vacant and allowing accessory dwelling units to be built on private properties. While expanding transportation options, increasing density, or enhancing connectivity by themselves do not necessarily lead to increased access, implementing a host of strategies together in key locations can help achieve greater accessibility and ultimately livability.
87 LRTS guide chapter 4.4, “Strategies to Improve Connectivity” 88 LRTS Guide chapter 4, “Complete Networks”
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3.14 Climate Change Impacts
In 2013 the Mid-Region Council of Governments was awarded a federal grant to incorporate climate change considerations into its In a Nutshell… transportation planning process. In particular, the study examined the relationship between growth patterns, development pressures, and Takeaways: Annual average climate change impacts on an inland region. It is through the expanded temperature levels are expected scope made possible by the Central New Mexico Climate Change to rise by 2-3⁰F by 2040, while Scenario Planning Project and the resulting partnerships that climate precipitation levels become more change issues are discussed in the 2040 MTP.89 variable. Taken together, these changes may lead to increased The climate change project and related analysis is timely, in part because frequencies of drought, wildfires, of the feedback MRMPO received as part of its public outreach and plan and flooding. development processes. Water resource availability, a function of climate conditions, was the number one regional challenge identified. Components: This section And it is the same factors that influence water resources, specifically examines projected climate changing temperature and precipitation levels, that also lead to conditions in the region and increased risk of droughts, wildfires, and flooding. The climate change some of the effects of climate project ultimately determined that how the region grows and its ability change on central New Mexico. to adapt to climate change impacts are inter-related. Minimizing growth The relationship between the in at-risk locations entails development forms that also lead to better built environment and locations transportation outcomes, a smaller regional footprint, and lower levels that are at increased risk due to of water consumed for residential purposes. the effects of climate change are considered. This chapter considers some of the ways climate change may impact the region, with particular emphasis on the effects of natural phenomena on Goals and Objectives: the built environment. Subsequent chapters consider water resources, Addressing the MTP goal of environmental considerations, and strategies to reduce greenhouse gas Environmental Resiliency begins emissions. with an understanding of the effects of climate change on the region. Preparing for climate uncertainties and minimizing the footprint of new development are supporting objectives.
89 The following federal agencies provided funding and/or technical assistance for the Central New Mexico Climate Change Scenario Planning Project: the Federal Highway Administration, U.S. Department of Transportation Volpe Center, U.S. Fish and Wildlife Service, Bureau of Land Management, U.S. Army Corps of Engineers, Bureau of Reclamation, National Park Service, U.S. Forest Service, Federal Transit Administration, Federal Emergency Management Agency, Department of Homeland Security, , and the Environmental Protection Agency. For more information, please see the “Climate Change Project” link on the MRCOG website.
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3.14.1 Impacts on Temperature and Precipitation Levels
In 2009, the U.S. Global Change Research Program (USGCRP) concluded that “human-caused emissions of heat-trapping gases will cause further warming in the future… [and] global average temperature is projected to rise by 2 to 11.5 °F by the end of this century.” Even more concerning, the USGCRP finds that by 2100, the average U.S. temperature is projected to increase by approximately 4 to 6.5 °F under a forecasted lower-emissions scenario and by approximately 7 to 11 °F under the higher-emissions scenario. The effects of climate change of temperatures in central New Mexico are particularly acute. Over the period of 1971 through 2011, average temperatures in the Upper Rio Grande Basin, in which the AMPA is situated, rose at a rate of just under 0.7 °F per decade, approximately double the global rate of temperature rise.90
Figure 3-56: Observed U.S. Temperature Change, 1901-2012; Observed Temperature Change Decadal Bar Graph, 1900s-2000s, U.S. Southwest91
Precipitation is also highly subject to climate change. Since 1900, average annual precipitation over the U.S. has increased by roughly five percent; however there are important regional differences. As the global average temperature increases, some areas of the United States will receive more precipitation while others will receive less. While the central plains and the northeast have observed increases in precipitation over the previous century, the desert southwest has witnessed general decreases. The changes are far from linear; the southwest region experienced an unusually wet period in the 1980s and 1990s, followed by extended period of below average rainfall. The uncertainty and unpredictability of precipitation events is only expected to increase over time.
90 Bureau of Reclamation, Upper Rio Grande Impact Assessment, Executive Summary, S-iii 91 U.S. Global Change Research Program www.globalchange.gov
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Figures 3-57: Observed U.S. Precipitation Change, 1901-2012; Observed Precipitation Change Decadal Bar Graph, 1900s-2000s, U.S. Southwest92
3.14.2 Projected Climate Conditions in Central New Mexico
Detailed analysis on expected climate change impacts in the Albuquerque metropolitan area were conducted as part of the Central New Mexico Climate Change Scenario Planning Project. Figure 3-58 represents potential changes in temperature and precipitation, as identified by general circulation models using three emissions scenarios.93 The data can be grouped into four climate scenarios, or climate futures, as well as a central tendency value based on data points between the 25th and 75th percentile. The most common grouping, or central tendency characteristics, indicates that average annual temperatures will increase 3-4⁰F by the year 2040. In addition to greater overall average temperatures, the number of days with temperatures over 100⁰F is also expected to increase.
Annual precipitation is slightly more likely to decrease than increase, but perhaps only by a small margin. The true impact of changes in precipitation will be felt in the variability. Climate experts anticipate that central New Mexico is likely to experience increased frequency of droughts, followed by increasingly extreme precipitation events. As a result, annual precipitation may not change greatly, but the nature of precipitation is expected to change.
92 U.S. Global Change Research Program www.globalchange.gov 93 Data analysis conducted by US DOT Volpe Center following a methodology employed by Bureau of Reclamation and Sandia National Labs for the Upper Rio Grande Impact Assessment. CMIP3 data was utilized for this analysis.
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Figure 3-58: Change in Annual Temperature and Precipitation Levels, Summary of Global Circulation Model Runs for Albuquerque Area, 2010 – 2040
3.14.3 Effects of Climate Change on Central New Mexico
The combined impacts of warmer average temperatures and variable precipitation levels have important implications for central New Mexico. Many of these effects have been outlined by the Bureau of Reclamation in the West-Wide Climate Risk Assessment: Upper Rio Grande Impact Assessment. The study focused in particular on impacts to the region’s hydrology and found there to be likely decreases in overall water availability, changes in the timing of flows, and increases in the variability of flows. Higher average temperatures and higher freezing altitudes mean that the form of precipitation will shift from snow to rain and result in earlier melting of snowpack. This will ultimately lead to delays in the arrival of the snow season, decreases in the size of snowpack, and earlier runoff in areas where seasonal cycles of runoff have historically been dominated by snowmelt.
Ultimately, supplies of all native sources to the Rio Grande are projected to decrease on average by about one third by 2100, while flows in the tributaries that supply the imported water to the San Juan- Chama Project are projected to decrease on average by about one quarter. The seasonality of flows is projected to change due to the anticipated changes in snowmelt and runoff. This increased variability in the amount, timing, and distribution of streamflow and other hydrologic variables indicate that the Upper Rio Grande Basin will experience a decrease in summertime flows, the time when agricultural and
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residential demands are greatest. More discussion on the implications of water resource availability on future development can be found in Chapter 3.15.
Impacts to the built environment were discussed in a report produced for the climate change project by Ecosystem Management, Inc. (EMI).94 The report found that higher temperatures lead to increased energy demands needed for cooling buildings and can also have negative air quality impacts by facilitating the formation of ozone and fine particular matter (PM2.5). Some of the report’s findings are summarized below:
• Droughts will have a range of impacts to humans and to the natural environment. Extended periods between rainfall events can impact the viability of local vegetation, reduce habitat for aquatic fish and bird species, and impact land animals in the surrounding riparian zones. Drought patterns may therefore require more water to support existing activities and ultimately necessitate adaptation in farming techniques and the types of agricultural products that may be produced.
• Increased periods without rainfall can also increase the risk of wildfires. While forest fires are a natural part of the landscape, the frequency and ferocity of events has increased dramatically in recent years. In fact, 19 of the 20 largest recorded wildfires in New Mexico have occurred since 2000. Such events are likely to continue, with impacts on the health of forest lands and greater threats to the built environment.
• Extreme precipitation events that follow periods of prolonged drought also create the conditions for flooding events, which may become more extreme with climate change. Flood control infrastructure will be needed more often in the future, even as overall water supplies decrease. Runoff from flooding events in conjunction with forest degradation due to increased forest fires will be increasingly problematic. Concentrations of nitrogen, phosphorus, suspended solids, and salt may increase as soil qualities degrade in response to increased evaporation rates for surface water and increased precipitation intensity. This would ultimately create a greater volume of pollutants in the river, with potential consequences for water quality. There is also evidence that precipitation events may become more extreme, meaning rainfall events that may have had a one percent annual probability (i.e. a 100-year design storm) may occur more frequently.
94 EMI, “Climate Changes Effects on Central New Mexico’s Land Use, Transportation System and Key Natural Resources,” 2014, available on the MRCOG website.
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3.14.4 Development Patterns and Adaptation to Climate Change
The Central New Mexico Climate Change Scenario Planning Project allowed MRMPO and regional stakeholders to incorporate these aforementioned impacts into long-term regional-scale analyses. Of particular interest was the relationship between future development patterns and vulnerabilities to the effects of climate change. Five climate change-related components were considered through the scenario planning process and evaluated using performance measures. These include:
• High flood risk areas: level of development in FEMA-designated 100-year floodplains • Forest fire risk areas: level of development in wildland-urban interface areas • Crucial habitat areas: level of development in high ranking areas using the Western Governors’ Association Crucial Habitat Assessment Tool (see Chapter 3.16 for details) • Water consumption: number of gallons of water consumed by residential users per year (see Chapter 3.15 for details)
• Emissions levels: CO2 tonnes per day (see Chapter 3.17 for details)
Two of these factors are considered in this section: flood-risk areas and forest fire risk areas. Since these measures lend themselves to spatial analysis, it is possible to observe the differences between the current and future year conditions and the extent to which households and other structures interact with these vulnerable locations. In this way the Trend and Preferred Scenarios can be evaluated for their relative resiliency to climate change impacts. Of particular interest from a scenario planning perspective is whether emphasizing development in certain locations, such as generally low-risk activity centers, can result in decreased levels of development in at-risk locations.
Flood Risk Areas
FEMA designates 100-year floodplains based on the extent of impact likely from a 24-hour 100-year precipitation event (see Map 3-39). In the AMPA, floodplains are generally located along the Rio Grande and arroyos that flow into the river system. Although the frequency and intensity of extreme events (i.e. the 100-year design storm) may increase and some individual floodplains may become enlarged, FEMA- designated floodplains are the official tool for assessing the risks associated with extreme precipitation events across the region.95 The 2040 MTP therefore uses the floodplains for spatial analysis and considers the number of housing units plus employees located in existing floodplains for the 2012 base year, Trend, and Preferred Scenarios.
An important difference between the Trend and the Preferred Scenarios is that the zoning capacity in 100-year floodplains in the Preferred Scenario is reduced by 20 percent. Nevertheless, the differences in
95 The Southern Sandoval County Arroyo Flood Control Authority performed a detailed analysis of the potential change in peak flow associated with increases in the 100-year design storm event for the Calabacillas Arroyo. SSCAFCA found that 10 percent increase in the design-storm resulted in a 25 percent increase in flow, while a 25 percent increase in rainfall led to a 75 percent increase in flow for that particular system. These results must be considered hypothetical and cannot be extrapolated upon in terms of impacts to all arroyos or floodplains. However, the analysis demonstrated that precipitation events of increased intensity did place additional structures at risk along the Calabacillas Arroyo system.
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development levels are modest. The Trend Scenario projects a 56 percent increase in housing and jobs in floodplains, while the Preferred Scenario projects a 52 percent increase in these areas. The minor reduction in growth in the Preferred Scenario reflects the fact that many floodplains are home to existing communities and high levels of development. Fortunately, many floodplains have been highly engineered to ensure extreme precipitation events can be properly managed. The most important consideration, therefore, is the concentration of development in floodplains, and whether growth takes place in floodplains that already have flood control infrastructure, or whether that growth occurs in locations where no such improvements have been made. In both scenarios, the majority of growth in floodplains occurs in the already developed Rio Grande Valley in Valencia County.
Table 3-22: Employment plus Households in Vulnerable Locations
Location 2012 Trend Preferred FEMA 100-Year Floodplains 34,242 53,285 52,042 Wildland-Urban Intermix areas 52,073 102,262 92,128
Forest Fire Risk Areas
According to the University of Wisconsin’s SILVIS Lab, wildland-urban interface (WUI) refers to the “area where structures and other human development meet or intermingle with undeveloped wildland.” Not only does new development pose a threat to the natural environment, but the climate literature indicates the natural environment (i.e. WUI areas) may be at greater risk due to wildfires and poses an increased threat to homes and structures. It is because of the inherent, and growing conflicts in these areas that the “WUI highlights the need for ecological principles in land-use planning as well as sprawl- limiting policies to adequately address both wildfire threats and conservation problems.”96
Wildland Intermix and Interface Area Definitions
Intermix communities are places where housing and vegetation intermingle. In intermix areas, wildland vegetation is continuous, more than 50 percent of the land is vegetation, and density is greater than 1 house per 16 ha.
Interface communities are areas with housing in the vicinity of contiguous vegetation. These areas have more than 1 house per 40 acres, have less than 50 percent vegetation, and are within 1.5 mi of an area that is highly vegetated.
MRMPO evaluated the number of housing units plus employees located in “intermix” areas in the AMPA (see Map 3-40). In contrast to the floodplains analysis, there is a greater difference in development outcomes between the Trend and the Preferred Scenarios: the Trend Scenario projects a 96 percent
96 V.C Radeloff, et al. “The Wildland-Urban Interface in the United States,” Ecological Applications, 2005, p. 799
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increase in households and jobs in floodplains, while the Preferred Scenario projects a 77 percent increase in these areas. When compared directly, there are 10 percent fewer households and jobs in WUI intermix areas in the Preferred Scenario than in the Trend.
Figure 3-59: Change in Employment plus Households in Vulnerable Locations
120%
100% 96%
77% 80%
56% 60% 52% Trend Preferred 40%
20%
0% High Flood Risk Areas Forest Fire Risk Areas
The results indicate the benefits associated with of emphasizing development in low-risk locations as a means of mitigating concerns surrounding development in high-risk locations. Further flood risk and forest fire risk mitigation strategies are identified in the Central New Mexico Climate Change Scenario Planning Project Final Report, which is now available on the MRCOG website.
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Map 3-39: FEMA-Designated 100-Year Floodplains
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Map 3-40: Wildland-Urban Interface Areas
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3.15 Water Resources
Discussions surrounding growth and development within a drought- stricken, arid region of the United States inevitably develop into a debate, In a Nutshell… and frequently an argument, around the availability of water and how prepared or unprepared central New Mexico is to accommodate the Takeaways: While water forecasted growth within the region. The discussion on growth would be resources are expected to lacking if it did not at least recognize the role that water availability and decline over time due to the future demands plays in overall future development. The emphasis on effects of climate change, water was an important component of the Central New Mexico Climate demand is likely to increase Change Scenario Planning Project and merits discussion within the MTP. due to projected growth and the effects of higher The inclusion of water analysis is a logical one in that it involves the same temperatures. set of projections used for land use and transportation planning. Moreover, how the region grows impacts demand through the types and The same projections used for density of development and the resulting landscaping and irrigation needs. land use and transportation The climate change project helped establish that, in addition to population planning purposes can aid in a growth distribution, land use practices influence how much water is wide range of policy decisions, needed for general consumption. including water resource planning. This section discusses overarching global, national, and local trends regarding drought, climate change, water availability, and water Components: This section conservation. During the public outreach process undertaken for the examines potential changes Futures 2040 MTP, water resource availability was the number one to long-term surface water regional challenge identified. While the scope of this plan cannot address supply, conservation and water availability at a comprehensive level, this section helps establish the management strategies, and long-term links between land use and transportation planning and water assesses the relationship resources. It also takes a look at the differences in projected water use for between growth patterns different growth scenarios as land uses require water at different rates. and water consumption needs. The purpose of this section is not to justify or argue for or against new development on any type of scale or within any particular area of the Goals and Objectives: region. This information is provided specifically to frame the discussion and Conserving water resources address the link between water, land use, growth and development, and and preparing for climate transportation within the region. Rather than engaging in an argument uncertainties are explicit about whether the region should grow, such knowledge can help inform objectives under the MTP how the region can grow most sustainably. goal of Environmental Resiliency.
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3.15.1 Water Supply
Following research that the region’s aquifer was being diminished at unsustainable rates, stakeholders began to increase reliance on surface water through the San Juan-Chama project.97 Over the last three years the Albuquerque Bernalillo County Water Utility Authority (ABCWUA) has generated 48 percent of its supply from surface water, allowing for valuable aquifer recharge and ensuring a more varied and therefore more sustainable means of meeting regional water demands. However, water resources are at long-term risk, primarily due to the effects of climate change.
Surface water resources for the Albuquerque metro area include both the “native” flows from the Rio Grande basin, and the “imported” water that arrives in the metro area via the San Juan-Chama project, which transports New Mexico’s rights to surface water from the Colorado River system to the Rio Grande through a series of pipelines and diversion dams. The long-term fate of these systems was assessed in a 2013 study by the Bureau of Reclamation, West-Wide Climate Risk Assessment: Upper Rio Grande Impact Assessment, that considered the “potential impacts associated with climate change on streamflow, water demand, and water operations in the basin.”98
The study utilized global climate model data as an input to a land surface model and a local river operations model to shed light on management strategies and quantify potential impacts on water availability. The Bureau of Reclamation concluded that the Upper Rio Grande Basin is likely to face decreases in overall water availability, changes in the timing of flows, and increases in the variability of flows. Specifically, supplies of all native sources to the Rio Grande are projected to decrease on average by about one third by 2100, while flows in the tributaries that supply the imported water to the San Juan-Chama Project are projected to decrease on average by about one quarter. Along with declines in average volume, the seasonality of flows is projected to change due to the anticipated changes in snowmelt and runoff. This increased variability in the amount, timing, and distribution of streamflow and other hydrologic variables indicate that this basin will experience a decrease in summertime flows, the time when agricultural and residential demands are greatest. All simulations conducted by the Bureau of Reclamation project show an increase in the month-to-month and year-to-year variability of flows. The frequency, intensity, and duration of both droughts and floods are also projected to increase.99
Climate data is marked by high degrees of uncertainty and variability. However, there are consistent trends that emerge within the data. The Upper Rio Grande Impact Assessment addressed this variability by analyzing the full range of climate model impacts on river flows. The datasets were grouped based on the temperature and precipitation levels projected by the global circulation models (GCM). Figure 3-60 contrasts average changes in water availability through the native Rio Grande flow and water imported
97 According to the ABCWUA website, “Officials first proposed use of the water for drinking after scientific studies in the early 1990s showed that Albuquerque’s aquifer – once thought to be virtually limitless – was smaller than originally believed, and being pumped twice as fast as nature could replenish it.” 98 Bureau of Reclamation, West-Wide Climate Risk Assessment: Upper Rio Grande Impact Assessment, December 2013, S-i. The study covered the headwaters of the Rio Grande and Rio Chama. 99 Ibid. Executive Summary, S-iii-iv
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from the San Juan-Chama system into the Rio Grande using the various GCM-based climate scenarios. Modeled river flows are measured at the Otowi gage and compared to historical data. 100 This information, a product of the climate change project, reflects the pressures that will shape and impact development within the region. The graphs indicate there is a significant range in potential flows along the Rio Grande by 2040, although in most scenarios the result is a decrease in water availability (only in the warm-wet climate scenario does the native flow increase). The most likely conditions, as measured by the average of central tendency data points, reflect a three percent reduction in the San Juan-Chama allocation and a seven percent reduction in native flows along the Rio Grande.
Figure 3-60: Native Rio Grande and San Juan Chama Water Availability, 2040
Water Availability in Rio Grande (2040) Compared to Historical Average
15%
10% Native (Rio Grande) 10% San Juan-Chama 5% 0% 0%
-5% -3% -3% -5% -6% -10% -7%
-15% -14% -14%
-20% -20% -25%
Change Compared to Historical Average to Compared Historical Change Warm-Dry Warm-Wet Hot-Dry Hot-Wet Central Tendency Climate Scenario Grouping
100 Analysis performed by Jesse Roach, formerly of Sandia National Labs, for the Central New Mexico Climate Change Scenario Planning Project. The work was originally performed for the Upper Rio Grande Impact Assessment, but was adapted to the 2040 timeframe and to the central New Mexico region. It is important to note that the comparisons are between modeled future year data and modeled (or simulated) historical data. Historical data is calibrated in the development of the URGSim model used for river flow analysis. As with transportation data, direct comparison is only available through comparisons of modeled historical/current conditions to projected conditions.
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3.15.2 Water Management Programs
There are many implications to climate change on water availability within the southwest. First, usable, manageable water supply is projected to decline. Due to the anticipated (and continued) loss of winter snowpack, supply of water as well as its ability to store water in the U.S. southwest will decrease. Second, there will a simultaneous increase in water demand for landscaping, irrigation, and agriculture due to the projected increases in temperature, as well as increased commercial and residential demand due to population growth. The decrease in water supply will be intensified by this increase in demand, and the gap between supply and demand will continue to grow.
While the information presented in this section is not to be interpreted as a rationale for opposing development or growth in central New Mexico; it does, however, demand that growth be undertaken in a responsible manner. While water management and climate change adaptation plans will be necessary to lessen the impacts discussed in this section, they cannot be expected to counter the effects of climate change. If temperature increases continue at the expected rates, risks of water shortages will increase with it.
The New Mexico Public Regulation Commission lists roughly 28 water companies providing service throughout the state. This list however does not contain municipally-owned and operated water utilities or mutual domestics operating throughout the state. Due to the autonomy of each independent water utility and the diversity of operating standards for each, the focus of this section will consist of the Albuquerque Bernalillo County Water Utility Authority (ABCWUA). There are two specific reasons for doing this: 1) the comprehensiveness of the data available; and 2) the ABCWUA serves roughly 75 percent of the metro area.
Water Resources Management Strategy
In October 2007, the ABCWUA published their Water Resources Management Strategy with the purpose of providing a safe and sustainable water supply for the metropolitan area. Specifically, this was to be achieved by determining and utilizing the existing water resources owned by the ABCWUA and planning and making the best choices for future supplies and management.
The key to this strategy is that it is designed to ensure ABCWUA customers have a safe and sustainable water supply until at least 2060. It is important to note that while the authority does not have planning and platting jurisdiction, land use decisions and water resources management are linked and water availability is taken into consideration for all future developments.
The Water Resources Management Strategy provides policies and recommendations for continuing to shift from sole reliance on the aquifer to renewable supplies including the San Juan-Chama Drinking Water Project. In addition to the San Juan-Chama project, conceptual projects include:
• Implementation of a full-scale aquifer storage and recovery program • Building and operating additional water reuse and recycling projects to provide irrigation and industrial water to larger areas in the southeast and western part of metro Albuquerque
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• Investigating the feasibility of desalination as a future water source • Evaluating and examining the use of the very deep aquifer
As for the ABCWUA’s strategy for use of existing supplies, the aquifer will no longer be the primary source of supply except during droughts and peak times during the summer. Ultimately, aquifer use will be limited to provide for the opportunity for natural and man-made recharge to create and maintain a groundwater drought reserve. As population increases over time, groundwater use will increase but will be limited to ensure a drought reserve. In 2007 one of the primary components of the strategy was the implementation of the San Juan-Chama Drinking Water Project. The San Juan-Chama water project is now the primary source of supply for the ABCWUA customers with groundwater, reuse, and recycling supplementing the surface water to meet demand.
Conservation Program
In 1995, when the ABCWUA service area was managed by the City of Albuquerque, a water conservation program was created with the goal of reducing per capita water use by 30 percent to 175 gallons per capita daily (GPCD) by 2004. This goal was achieved, and the ABCWUA later established goals of reducing water use to 150 GPCD by 2014 and 135 GPCD by 2024. This latter goal has also been met and the average Albuquerque resident used only 134 GPCD in 2014.101
Figure 3-61: ABCWUA Gallons per Capita per Day, 1994-2014
275 252 Gallons Per Capita Per Day 251 239 220 1994-2014 225 216 205 216 210 192 197 174 175 177 167 159 157 165 161 148 136 150 134 125 '94 '95 '96 '97 '98 '99 '00 '01 '02 '03 '04 '05 '06 '07 '08 '09 '10 '11 '12 '13 '14
The ABCWUA and the City of Albuquerque have made significant progress in the first 17 years of the water conservation program. This program has helped move the City from among the highest municipal water users in the U.S. southwest to among the lowest. When the conservation program began in 1995, it took approximately 40 billion gallons of water annually to serve 143,000 accounts. In 2012, approximately 205,000 accounts were served with only 34 billion gallons of water. The accelerated pace of reduction has meant an increase in drought reserves: at 150 GPCD the metro area would have added
101 Data provided by ABCWUA.
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144,730 acre-feet annually, but at 135 GPCD the ABCWUA adds 187,629 acre-feet to the drought reserve annually.102
103 Figure 3-62: Gallons per Capita Daily in Selected Western Cities, 2013
Santa Fe, NM 101 Flagstaff, AZ 113 Aurora, CO 121 Tucson, AZ 127 San Antonio, TX 127 Los Angeles, CA 129 El Paso, TX 132 Albuquerque, NM 135 Austin, TX 136 Denver, CO 142 San Diego, CA 152 Colorado Springs, CO 173 Phoenix, AZ 185 Reno, NV 203 Las Vegas, NV 212 Salt Lake City, UT 233 0 50 100 150 200 250
Water conservation goals for the next ten years are less than in previous years because the ABCWUA has already made significant reductions, primarily among residential customers, in water usage over the last nineteen years. Further reductions of this amount cannot reasonably be expected to continue for the next ten years without significant mandatory restrictions. Thus, much of the savings will need to come from the other customer classes that are using a smaller percentage of the total supply (and with lower savings opportunities).
Over the ten-year period from 2013 to 2023, each customer class is expected to reduce their use by the following percentages:104
• Residential – 7.5% • Commercial – 17.7% • Multi-Family – 12.6% • Industrial – 10% • Institutional – 10% • Non-revenue – 13% • Other – 6.4%
102 ABCWUA, “Water Resources Management Strategy Implementation, 2024 Water Conservation Plan Goal and Program Update,” July 2013, p. 12 103 http://savewatersantafe.com/wp-content/uploads/2015/04/Western_Cities_GPCD_comparision-2013_data.jpg 104 ABCWUA, “Water Resources Management Strategy Implementation,” 2024 Water Conservation Plan Goal and Program Update, July 2013, p. 9
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Middle Rio Grande Regional Water Plan
The Middle Rio Grande Region is one of 16 water-planning regions in New Mexico. It comprises Sandoval, Bernalillo and Valencia counties—an area covering more than 5,000 square miles. Around half of New Mexico’s population lives within this area, making the region the largest urban water user in the state.
Guided by the New Mexico Office of the State Engineer Interstate Stream Commission, the first regional water plan was created in 2004. The development and implementation of this initial water plan was intended to support policies, programs, and projects that meet the goals of the plan. Recognizing the limited resources and consistent overuse of the region’s water, the mission of the regional water plan was to balance water use with renewable supply.
In 2014, the State of New Mexico began the process of updating the regional water plans throughout the state, enlisting support by the groups previously involved in their creation. Specific to the Middle Rio Grande Regional Water Plan, the Interstate Stream Commission (ISC) began utilizing the Mid-Region Council of Governments Water Resources Board to develop a steering committee to guide the development of the update for this region. Throughout 2015, the steering committees will work with the ISC and the general public to update the plans for scheduled adoption by the state at the close of 2015.
Based on the inherent link between transportation, land development and the availability of water, it is important for future MTPs to include and reference information within the regional water plans and for the regional water plans to reference the projections contained in the MTP.
3.15.3 Water Consumption & Scenario Planning
Given that the region faces less precipitation, or precipitation occurring in major events, and increasing temperatures that are likely to increase drought conditions and limit water availability, it is important to consider the relationship between future land use and future water demand. Unlike the Upper Rio Grande Impact Assessment which considered effects on water supply, the Central New Mexico Climate Change Scenario Planning Project evaluated the impacts of the built environment on water use. In particular, future land-use scenarios were evaluated for their effect on residential water consumption.105
As stated in the Central New Mexico Climate Change Scenario Planning Project Report prepared by the University of New Mexico and Ecosystem Management, Inc., the main factor affecting water supply is the development footprint of the metropolitan area. This footprint is made up of surfaces such as buildings and paved roadways, which decrease the amount of land-area available for rain water to
105 Scenario analysis related to water demand was performed by the University of New Mexico as part of the Climate Change Scenario Planning Project. Much of the work in this section is taken directly from the final report developed for that project.
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permeate the surface and replenish ground water resources. Evaluating resiliency to drought as it relates to changes in water supply is determined by the amount of land developed in each scenario. It can be rationally assumed that scenarios with more acres of developed land are less resilient since they will place greater limits on ground water recharge.
At the same time, the main factor affecting water consumption is land use. The project team for the Central New Mexico Climate Change Scenario Planning Project Report evaluated water consumption data from the Albuquerque Bernalillo County Water Utility Authority and the New Mexico Office of the State Engineer to create water consumption rates for each major category of land use. These water rates were then used to estimate the total water consumption of each scenario based on the amount of land developed by each land use category.
Water use accounts were provided by the ABCWUA and were linked to parcel-level land use data to determine how water consumption varied by land use, lot size, and year of construction. Figure 3-63 shows that residential water consumption per housing unit increases as lot sizes increase. This trend is most notable for single family homes with less than half-acre lot sizes. As lot size increases above one- half acre, the association between lot size and water consumption decreases (the trend breaks down among larger lot sizes). Figure 3-63 also indicates that single family housing units use far more water than multi-family housing units. Also important to note is that there is a sharp drop in water consumption rates for homes built after 2009. This is due to the fact that lot sizes are getting smaller and tend to have less irrigated landscaping. Efficiency improvements may also play a role.
Figure 3-63: Residential Water Consumption Rates by Lot Size, Bernalillo County
Source: ABCWUA, UNM
Due to the fairly strong correlation between lot size and water consumption rates, a per-acre water consumption rate was created to calculate overall residential consumption levels. These estimates are expected to provide a reasonable method for comparing the relative water consumption of each scenario. Scenarios that have lower land consumption rates are therefore expected to be more resilient
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to drought driven by climate change. Since the Preferred Scenario results in 12,600 fewer acres required to meet residential housing needs than the Trend, the Preferred Scenario leads to significantly lower annual water demands (see Table 3-23).
Table 3-23: Residential Acres and Total Water Consumed by Residential Users106
Residential Water Consumption by Scenario Scenario Acres Million Gallons per Year 2012 134,431 56,607 Trend 194,914 82,075 Preferred 182,275 76,753
Forecasting shows water consumption increasing significantly from today as the region’s population grows over time; however, the Preferred Scenario performs notably better than the Trend when it comes to residential water consumption. The Central New Mexico Climate Change Scenario Planning Project Report concludes that since multi-family and small lot residential land uses consume less water than larger-lot single-family housing, denser residential development may be an effective strategy for slowing the region’s growing water consumption even as population increases. The study finds further that agriculture consumes a significant amount of water and that improving irrigation efficiency or growing drought tolerant crops could significantly reduce the region’s water consumption. If the region is interested in preserving open space and agricultural land, the principles of the Preferred Scenario may be applied to reduce demand in other areas to allow agricultural uses to continue.
106 The residential water consumption rate (gallons/acre/year) is calculated at 421,085.
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3.16 Environmental Considerations
The transportation planning process requires that potentially-affected environmental resources are identified and potential environmental In a Nutshell… mitigation activities are developed to protect those resources. The intent of identifying natural resources that could be impacted by new infrastructure Takeaways: Climate change is or new development is to encourage better coordination and stronger putting many of natural linkages between land use, transportation, and natural resource planning. resources and crucial habitat Although project-specific mitigation measures are developed during the areas under increased stress. National Environmental Policy Act (NEPA) process, environmental concerns These threats can be are regional in nature and benefit from many of the same comprehensive exacerbated by the built analyses as transportation and land use planning. Resource mapping is an environment. important first step and analysis of environmental conditions should occur Components: This section early in the transportation planning process with the participation of broad outlines some of the regional stakeholders. Spatial data for environmental resources was environmental collected from various agencies and are shown in Maps 3-41 and 3-42. considerations that must be As part of the Central New Mexico Climate Change Scenario Planning made during project Project, MRMPO consulted with federal, state and local wildlife, land development. The management, and regulatory agencies to identify natural resources at risk relationship between due to changing temperature and precipitation levels. Mitigation measures development patterns and are contained in the project’s Final Report.107 The project also enabled crucial habitat assessment broader analysis of the relationship between development patterns and areas are analyzed. sensitive habitat areas. It is appropriate to include these considerations in Goals and Objectives: the MTP as they have direct implications for long-range land use and Minimizing the footprint of transportation decision-making. new development, which Environmental resources and issues identified by MRMPO that could can preserve crucial habitat potentially be impacted by transportation projects include: areas, is an objective of the MTP goal of Environmental • Stormwater runoff associated with roadways Resiliency. • Roadway and construction activity impacts to trails • Open space reserves and parks • Arroyo resources • Bosque habitat • Federal and state endangered species critical habitat areas • Habitat loss and fragmentation from human developments such as highways • Maintaining or reestablishing habitat connectivity • Cultural (historic and archaeological) resources
107 The report is available on the MRCOG website under “Climate Change Project.”
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Map 3-41: Parks, Open Space, and Land Status
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Map 3-42: Wildlife Corridors and Habitats
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Resources were mapped to reveal how they might be impacted by proposed transportation projects and to assist in the development of appropriate mitigation measures. Some resources, such as archaeological resources and certain species occurrences, are not included on the map as that information is not released to the general public. Descipriptions of various resources subject to environmental review and consultation can be found in Table 3-24.
Table 3-24: Natural Resource Considerations
Resource Notes Areas of Significance
Wildlife corridor mapping is an important Wildlife/vehicle incidents are step in preserving natural habitats and concentrated in the East Mountains Wildlife Habitat preventing wildlife/vehicle collisions. and Tijeras Canyon portions of Ranges Consultation with the New Mexico Bernalillo County and along US 550 Department of Game and Fish occurs in southern Sandoval County. during project development.
The Rio Grande is fed by other rivers and a system of arroyos throughout the AMPA. The Albuquerque Metropolitan Flood control infrastructure is critical for Arroyo Flood Control Authority and Flood Control protecting existing infrastructure. Projects the Southern Sandoval County Infrastructure that may impact arroyos, arroyo drainage Arroyo Flood Control Authority functions or arroyo recreational trails must manage flood risks within portions be developed in coordination with the of the AMPA. appropriate agencies.
Recreational sites must be served by transportation infrastructure, but can be Large open space facilities can be subject to adverse impacts depending on found in the East Mountains and Parks and Open the design of that same infrastructure. along the Bosque. Urban parks and Spaces Impacts to parks and open spaces, both federal land management areas are existing and planned, should be considered found throughout the AMPA. during project development.
Cultural resources, which include both archaeological and historic resources, are In general, the density of frequently impacted by transportation archaeological sites is higher on projects. Consultation with the State Albuquerque’s West Mesa and Cultural Historic Preservation Office and tribal along the Rio Puerco than in the Resources governments should occur early in the more urbanized portions of the project development process to avoid, AMPA. Archaeological sites are not minimize and mitigate any project impacts published for protection purposes. to these resources.
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Crucial Habitat Areas
The climate change project established that increased Crucial Habitat Assessment Tool ranking criteria: temperature and variable precipitation levels place greater strain on native plant and wildlife species. Beyond basic • Species of concern (animals resource mapping, scenario planning efforts allowed and plants) MRMPO and regional stakeholders to further examine the • Wildlife corridors relationship between development patterns and crucial • Terrestrial species of economic wildlife and vegetated areas. and recreational importance • Aquatic species of economic The principal tool used for this analysis is the Western and recreational importance Governors’ Association Crucial Habitat Assessment Tool • Freshwater integrity (CHAT). CHAT considers a range of criteria, such as species (watershed status) of concern, freshwater integrity, and natural vegetation • Large natural areas areas of concern, and applies a ranking to one-square mile • hexagons based on the type and magnitude of risks placed Natural vegetation upon the native species, as well as the vulnerability of the communities of concern local habitat. CHAT ranking levels
The purpose of the CHAT tool is to inform regional planning Category 1 – Rare or fragile habitat across multiple jurisdictions and to “improve analysis of that are considered “irreplaceable” landscape-scale energy, land use and transportation in that the environmental projects as well as land conservation and climate adaptation conditions are unique and only 108 strategies.” Crucial habitats are “places containing the found in limited areas resources, including food, water, cover, shelter and Category 2 – Habitat locations are ‘important wildlife corridors,’ that are necessary for the considered “essential” and without survival and reproduction of aquatic and terrestrial which species could be subject to 109 wildlife.” serious population decline The most crucial habitat areas, and therefore the locations Category 3 – Important for the most vulnerable to development impacts, can be found in maintenance of aquatic or wildlife locations along and near the Bosque (see Map 3-43). This populations, though impacts could means that many of the most crucial locations for native be managed and habitats can be wildlife and aquatic species are in the region’s urban core restored over time and historically-settled areas. Other high ranking locations Categories 4-6 – Less crucial include portions of the East Mountains and areas around habitat areas or locations with no Santa Ana Pueblo and the community of Algodones. available data Relatively undeveloped areas are frequently lower in the CHAT rankings.
108 Western Governors’ Wildlife Council, “Western Governors’ Crucial Habitat Assessment Tool (CHAT): Vision, Definitions and Guidance for State Systems and Regional Viewer,” July 2013, p. 3 109 Ibid.
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Map 3-43: Crucial Habitat Areas
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To evaluate how the MTP scenarios would affect crucial habitat areas, a weighted score was created by taking the sum of the households and population in each category for ranks 1 to 3 and multiplying the sum by a value (3x for rank 1; 2x for rank 2; 1x for rank 3). In this way a composite score was developed to evaluate overall performance of the Trend and the Preferred Scenarios.
Unlike most performance measures, the Preferred Scenario produces no significant benefits compared to the Trend Scenario (there is a 40 percent increase in the Trend Scenario in the total number of households and jobs in rank 1 CHAT areas compared to a 38 percent increase in the Preferred Scenario).
Table 3-25 also reveals that a large portion of new households and employment are located in areas with a high CHAT ranking but that were already subject to high levels of development. This is due to the fact that growth is more concentrated in the urban core (areas near the Rio Grande have higher CHAT scores). This pattern raises the question of whether the impact of new development is greater in locations with a lower CHAT score but no existing development, or in existing locations with high CHAT scores and more intense development.
Table 3-25: Development in Crucial Habitat Areas
CHAT All Zones Existing Development Area 2012 Trend Preferred 2012 Trend Preferred Rank 1 84,879 118,912 117,153 82,229 113,697 112,355 Rank 2 152,884 201,862 201,402 148,520 195,591 195,667 Rank 3 7,406 29,289 28,421 3,229 5,047 5,396 Total 1-3 245,169 350,063 346,976 233,978 314,335 313,418 Rank 4-6 491,484 750,696 756,109 502,675 786,424 789,667 Total 736,653 1,100,759 1,103,085 736,653 1,100,759 1,103,085
CHAT rankings do not identify instances where wildlife species are threatened by human impacts, but the locations that are most critical to preserve, according to a range of criteria. It is therefore important to distinguish between the impacts of existing versus new development since many impacts are already felt. In fact, over 95 percent of the new growth in Rank 1 crucial habitat areas in the Preferred Scenario occurs in locations with existing development (the amount is 92 percent in the Trend Scenario).
The Central New Mexico Climate Change Scenario Planning Project Final Report concludes that it is generally preferable to allow additional growth in places that have already been developed since the species that inhabit these areas are adapted to urban living. Impacts on less crucial areas with no existing development are greater than the impacts of further development in locations already part of the human-wildlife interface. Nevertheless, since the Preferred Scenario emphasizes additional housing and employment in locations with existing development that are high-ranked CHAT areas, it is important to reconcile development and habitat needs. Some strategies include:
• Minimizing new development in crucial habitat areas • Providing green space in the form of urban parks and open space
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• Maintaining urban forests, which have the added benefit of reducing the heat island effect and making pedestrian and other outdoor activities more enjoyable • Maintaining wildlife corridors and buffers between built environment and crucial habitat areas
Other mitigation measures to reduce the impacts of new development and protect crucial habitat areas can be found in the Central New Mexico Climate Change Scenario Planning Project Final Report.
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3.17 Emissions Reduction and Responding to Climate Change
Like all other places across the world, the Albuquerque metropolitan area must consider ways to reduce global carbon dioxide (CO₂) In a Nutshell… emissions, which is the primary greenhouse gas created through human activity. Greenhouse gases (GHGs) enter the atmosphere through the Takeaways: Transportation and burning of fossil fuels, but they differ from other emissions in that GHGs land use strategies can play a key also trap heat in the atmosphere. Trailing only the energy sector in role in reducing GHG emissions contributions, transportation produces 28 percent of the nation’s CO₂ through decreased reliance on emissions and therefore represents an important opportunity for single-occupancy vehicle travel curbing global climate change. The on-road sources of GHGs include and more efficient transportation automobiles, buses, trucks and other vehicles traveling on local and systems. The same strategies that highway roads. While reducing GHG emissions from these sources are critical in reducing emissions positively impacts climate change outcomes, many of the strategies for and improving air quality also reducing these emissions are also beneficial in addressing other support the principles of the transportation-related pollution from CO, PM2.5, and ozone precursors. Preferred Scenario. Therefore, for the region to play its role in reducing GHG emissions also means addressing local air quality. Components: This section provides a brief outline of Figure 3-64: Total U.S. Greenhouse Gas Emissions by Sector in 2012110 emission reduction strategies. More thorough analysis can be found in Appendix F (Transportation-Related GHG Agriculture Commercial & Mitigation Strategies and 10% Residential Potential Application in Central 10% New Mexico) and Appendix G Electricity 32% (Potential Impacts of GHG Emissions Reduction Strategies),
Industry 20% produced as part of the Central New Mexico Climate Change Scenario Planning Project.
Transportation Goals and Objectives: Reducing 28% emissions and improving air quality supports the MTP goal of Environmental Resiliency.
110 Inventory of U.S. Greenhouse Gas Emissions and Sinks 1990-2012, http://www.epa.gov/climatechange/ghgemissions/sources/transportation.html
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Future scenarios for transportation use in the AMPA show large increase in GHGs from current levels (see Figure 3-65; the Trend Scenario results in a 42 percent increase in CO₂ emissions while the Preferred Scenario results in a 30 percent increase). When compared directly, however, the Preferred Scenario results in an eight percent reduction in overall CO emissions. While the total quantity of GHGs increase, GHGs per capita decline in each scenario. The decline in per capita GHG emissions is driven in ₂ part by the expected increase in average vehicle fleet fuel efficiency nationwide over the next 28 years (Corporate Average Fuel Economy [CAFE] standards rise to 35.5 MPG by 2016 and 54.4 MPG by 2025).111 Also driving the per capita GHG emissions decline is the reduction in VMT per capita. These factors can be reinforced by changes in land use configurations that result in shorter travel distances, as well as an emphasis on alternative modes of transportation that produce either zero emissions or relatively small amounts of emissions per capita (i.e., public transit service). According to the Transportation Research Board’s Driving and the Built Environment: “The greatest opportunities for building more compact, mixed-use developments (and therefore reducing travel demand and GHG emissions) are likely to lie in new housing construction and replacement units in areas already experiencing density increases, such as inner suburbs and developments near transit stops and along major highway corridors or interchanges.”112
Figure 3-65: Change in Emissions by Scenario, CO₂ tonnes per day
45% 42% 40%
35% 30% 30%
25%
20%
15%
10%
5%
0% Trend Preferred
111 Fleet average fuel efficiency is calculated by dividing each scenario’s estimated daily CO2-equivalent emissions by daily VMT. CO2-equivalent was estimated by MOVES and considers changes in the vehicle fleet, distribution of VMT by roadway type, and traffic speed. VMT was estimated by MRCOG’s travel demand model. 112 Transportation Research Board, Driving and the Built Environment, Special Report 29, Washington DC, 2009
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Emissions Reduction Strategies
Considerable work was performed through the Central New Mexico Climate Change Scenario Planning Project to identify potential transportation and land use strategies that could result in GHG emissions reductions, as well as the magnitude of that impact. What follows are brief descriptions of some of those strategies. These strategies, especially when used in combination, could have meaningful impacts on congestion management outcomes, as well as reductions in per-capita vehicle emissions in the region.
Figure 3-66: Vehicle Emissions Curve113
In general, the strategies fall into two categories: 1) efforts to reduce emissions by improving speeds and the efficiency of vehicle travel (as show in Figure 3-66, up to a certain level increases in vehicle speeds result in lower emissions rates); 2) reducing emissions by eliminating trips or reducing trip lengths. More details can be found in the complete reports, which are included as Appendices F and G.
• Expanded transit service: Transit can be an efficient means of moving travelers and utilizing roadway space efficient use of the road. Adding transit services where possible can take more drivers out of their cars • Targeted land use mix and increases in density: Infill development and transit-oriented development are policies aimed at reducing trip lengths and encouraging travel by alternative modes. There are two general mechanisms for implementing these strategies: (1) lowering the cost of infill development by lowering fees (e.g., impact fees) or providing development subsidies, and (2) changing zoning classifications or creating new zoning classifications.114 • Intersection and signal timing improvements: Roadway investments can move traffic more efficiently and reduce idling times and high emissions rates resulting from lower speeds
113 Barth, Matthew and Boriboonsmonsin, Kanok, “Traffic Congestion and Greenhouse Gases,” Access Magazine, Fall 2009
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• Incident management: Addressing non-recurring congestion can be effective at reducing vehicle emissions due to delays and low travel speeds • Multi-modal infrastructure: Improved travel options and greater pedestrian and bicycle network connectivity can • Roadway connectivity standards: Provide multiple routes to a destination to alleviate overall congestion and provide relief in the event of construction or a vehicle crash • Travel demand management: Regional or employer-based commuter programs that educate employees, incentivize carpooling, or provide discount transit fares could reduce the amount of single-occupancy vehicles (SOVs) on the road during peak hours. Carpooling and ride sharing website tools and/or programs such as these could also reduce the number of SOVs on the road thereby reducing congestion. • Parking management: Strategies and pricing policies to either increase the efficiency of existing parking facilities and reduce excess driving or encourage alternatives to single-occupancy vehicle travel
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